. i V n" f 

ni5 




SivJ\. (rw tij- '^'Wvk "Y" (Id/lvu^v^ut^ai^ 



i.t- 





^ Qc^WvUL, 1^ If. 



n-. 







. >■ -v^ 
^;^^^/ 



House No. 2133 

REPORT 

ON THE 

WORK AND ADMINISTRATION 

OF THE 

Board of Commissioners on 
Fisheries and Game 



SUBMITTED TO 



GOVERNOR AND COUNCIL AND GENERAL COURT 

BY THE 

COMMISSION ON ECONOMY AND EFFICIENCY. 



APRIL 26, 1915. 



BOSTON: 

WRIGHT & POTTER PRIiN^TING CO., STATE PRINTERS, 

32 DERNE STREET. 

1915. 



/^-•' ^'}^o^ 



0. OF n. 

JUL 6 -'Ji 



'\ 



5 



TABLE OF CONTENTS. 



1. Letter of transmittal, with summary of recommendations, 

2. Description of work, finances and organization. 

Appropriations and expenditures, . 
Organization, .... 

Central office, .... 
Enforcement of law. 
Propagation and distribution of fish and 

3. Criticisms and recommendations, 

Reorganization of commission. 

Finances and accounts, 

Traveling expenses of commissioners, 

Annual report, .... 

Methods of purchasing supplies. 

Enforcement of law, 

Development of shell fisheries, 

Propagation and distribution of fish and game, 
Appendix A. — Officials and employees in Department of Fisheries and Game 

Appendix B. — Receipts, 1912, 1913, 1914, 

Appendix C — Acquisition of properties in game fai-ms and fish hatcheries, 
Appendix D. — Draft of proposed act reorganizing the commission. 
Appendix E. — Draft of proposed resolve authorizing sale of property at 
Wilbraham, .......... 



PAGE 

5 
9 
9 
9 
10 
11 
18 
24 
24 
25 
31 
35 
37 
37 
40 
43 
51 
54 
55 
57 

58 



®l)e ^ommontocaltl) of iHassachusete. 



REPORT ON COMMISSIONERS ON FISHERIES 
AND GAME. 



1. LETTER OF TRANSMITTAL, WITH SUMMARY OF 
RECOMMENDATIONS. 

State Hotjsb, Boston, April 26, 1915. 

To His Excellency the Governor, the Honorable Council and the Honorable 
Senate and House of Representatives. 

The Commission on Economy and Efficiency respectfully sub- 
mits herewith a report on the work and administration of the 
Commissioners on Fisheries and Game, with constructive recom- 
mendations for important changes which should be made in the 
organization, policies and methods of that department. 

We recognize the practical and economic importance of con- 
serving the natural assets of fisheries and game, and are of the 
opinion that their conservation demands a reorganization of the 
Commissioners on Fisheries and Game to produce results satis- 
factory to the people of the Commonwealth. The statutes re- 
lating to the shore and shell fisheries of the Commonwealth 
should be revised so as to provide more nearly uniform conditions 
among the shore towns and to encourage the development of 
these important industries. 

Briefly stated, we find that present conditions are unsatisfac- 
tory in that the Commissioners on Fisheries and Game are so 
organized under the present law as to preclude the fixing of 
responsibility; that the administration of the department in 
all branches of its work has been extremely lax; that no com- 
prehensive policy has been adopted; that the cost of the game 
farms and fish hatcheries has been excessive; that the expense 
accounts of the commissioners have contained improper charges; 
that the output from the game farms has not been properly 
accounted for; and that the purchase and development of cer- 
tain game farms and fish hatcheries have been ill-advised, in- 
volving unnecessary expenditures. In our opinion the enforce- 



I-ISIIKKIKS AND (lAME. [April, 

ment of the fish laws in Buzzards Bay by the District Police 
stcanuT "Lexinpton" is unnecessarily and unwarrantably ex- 
pensive, ((jualinj; in cost for six months of each year over 21 
per cent, of the total annual expense of enforcing the fish and 
^'aiiie laws throughout all other sections of the Commonwealth. 

The present conditions and practices obtaining in the Depart- 
ment of Fisheries and (iame are described briefly in this report, 
and are shown in greater detail in documents on file in this office. 

In order to correct the present unsatisfactory conditions in the 
Department of Fisheries and Game, the Commission on Economy 
aiul Fflicifiicy rtsprct fully sulnnits the following recommenda- 
tions: 

Sr MM A KY OF Keccmmendations. 

Organization. 

1. Statutory provision should be made for a single Commis- 
sioner on Fisheries and Game, to be appointed by the Governor, 
with the advice and consent of the Council, for a term of three 
years and at a salary to be fixed by statute. Such a reorganiza- 
tion is imperatively needed in order to fix responsibility and to 
correct the general laxity of ailministration now existing. (See 
page 24. ) 

2. A deputy commissioner to have immediate direction of the 
game farnis and fish hatcheries should be appointed by the com- 
missioner, and the salary fixed by him, sul>ject to the approval 
of th«' Governor and Council. (See page 24.) 

Finanrcis and Account.^. 

3. Appropriation acts should clearly indicate the amount 
which may be expended for definite purposes and activities, 
such as (a) the salaries and expenses of the commi.ssioner and 
tin- office force; (6) the salaries and expenses of the deputies 
employed for the enforcement of law; (r) the expenses of each 
game farm, fish hatchery and game reservation; and (d) the 
acquisition of new properties, construction of l)uildings and other 
improvements. Money appropriated for one purpose should not 
be expended for any other purpose. (See pages 25 to 27.) 

4. The accounting methods should be improved and accurate 
accounts should be kept to determine the cost of buildings and 
improvements, the cost of each principal class of work and of 
each game farm and fish hatchery, the revenue from sales of 
farm output, and the (|uantities of stock on hand, produced and 
distributed at each game farm and fish hatchery. (See pages 27 
to 30.) 



1915.] HOUSE — No. 2133. -7 

5. Cash received by superintendents of farrjis and hatcheries 
from sales should be turned into the State treasury instead of 
used for payment of bills. (See pages 30 and 31.) 

(3. The revenue from hunters' licenses should be collected by 
the Treasurer and Receiver-General's Department and not by 
the chief clerk in the office of the Commissioners on Fisheries and 
Game. (See page 31.) 

7. Purely personal expenses should not be charged to the 
Commonwealth, and expense accounts should be audited with 
sufficient effectiveness to disallow improper charges. (See pages 
31 to 35.) 

Annual Report. 

8. The annual report of the Commissioners on Fisheries and 
Game should be published annuallyy ,not triennially. (See pages 
35 to 37.) 

Purchase of Supplies. 

9. Standard articles of equipment and supplies for the farms 
and hatcheries should be purchased in quantities through the 
central office. (See page 37.) " •> 

Kyiforcement of Law. 

10. The chief deputy in charge of the enforcement of law 
should actually superintend the work of the State district depu- 
ties, instead of occupying a desk at the State House. (See pages 

37 and 38.) 

11. Nantucket and Martha's Vineyard should be consolidated 
into a single district for the enforcement of law and placed under 
the superintendent of the game farm at Martha's Vineyard. 
A deputy, at a lower salary than that paid each deputy now 
assigned to Nantucket and to Martha's Vineyard, should be 
appointed as an assistant to the superintendent. (See pages 

38 to 39.) 

12. The unwarranted expenditure of over $10,000 annually for 
the District Police steamer "Lexington" to enforce law (pri- 
marily the fish laws) in Buzzards Bay for six months of each 
year should be discontinued, and the captain of this steamer, 
receiving $2,000 a year and his maintenance while the steamer 
is in commission, should be assigned to duties commensurate 
with his compensation. (See pages 39 and 40.) 

Shell Fisheries. 

13. The Commissioner on Fisheries and Game to be appointed 
upon the reorganization of the department should report to the 



8 FISIIEIUKS AND (JAMK. [April, 

(iouoral Court on methods or procedure for developiuf^ the sliell- 
fish industries, with drafts of proposed lejjislation to correct 
present unsatisfactory conditions and to facilitate the produc- 
tion of shellfish. (See i>ajr<'s 40 to 4'A.) 

(idiiir FiiniiK (ind Fi.sli Unirhrriis. 

14. No further money shoidd he expenderi for the develop- 
ment or extension of jjame farms and fish hatcheries until the 
commission is reorji:anized, a thoroufjh survey of State conditions 
and needs made, and a definite plan of development adopted, 
witii due consideration given to the utilization, without expendi- 
ture for land, of institutional and reservation properties at 
present owned by the Commonwealth and to its co-operation 
with the I'nited States government and the State Board of 
Agriculture and State Forester. (See pages 43 to 45.) 

1.^. Careful study shouhl he made as to whether direct pur- 
chase of fish and game for restocking would not he more ad- 
vantageous, both as to economy and to practical results obtained, 
than the present system of production. (See page 47.) 

l(i. The proposed purchase of additional land at East Sand- 
wich shoidd he abandoned, the game farm discontinued and the 
game and State property now located on the game farm trans- 
ferred to some other State reservation. (See pages 44 and 48.) 

17. The game farm at Wilbraham should be discontinued, the 
game and equipment transferred to the Palmer farm and other 
stations and the farm at Wilbraham sold. (See pages 48 and 49.) 

15. The game farm at Sharon should be immediately discon- 
tinued, aiifl the State property now located there transferred to 
the game reservation at Norfolk. (See pages 49 to 50.) 

Appended to this report are copies of a proposed act and re- 
solve embodying this commission's recommendations for reorgani- 
zation of the Commission on Fisheries and Game and for the 
sale of the Commonwealth's property at Wilbraham. 

Respectfully submitted, 

COMMISSION ON ECONOMY AND EFFICIENCY, 

Francis X. Tyrrell, Chairman. 
Thomas W. White. 
Russell A. Wood. 



191n. 



HOUSE — Xo. 2133. 



2. DESCRIPTION OF WORK, FINANCES AND ORGANIZA- 
TION. 

The Commissioners on Fisheries and Game are charged with 

(a) the enforcement of the State laws relative to game and 
fisheries, excepting the enforcement of the seining and lobster 
laws in Buzzards Bay, which is the duty of the District Police; 

(b) enforcement of certain laws relative to forest fires; (c) sci- 
entific investigations relating to fisheries and game; the propa- 
gation and distribution of fish, birds and game, including the 
stocking of ponds and brooks; and the establishment of bird 
and game preserves. 

Appropriations and Expenditures. 
The appropriations and expenditures for the commission for 
the year 1914 are summarized in House Document Xo. 1, as 
follows: — 



Appropriation. Expenditures. 



Anntial Expenses. 

1. Compensation of commissioners, 

2. Expjenses, . . . . . 

3. Clerical services, . . . . 

4. Enforcement of the laws, 

5. Stocking great ponds. 



Special Expenses. 
6. Establishment of fish hatcheries, 

f Propagation of game birds and animals. 
Propagation of food fish, 
- J Codification of fish and game laws, 
■ i Ice house at Palmer hatchery, 
Piping Wilbraham game farm, 
I, Increasing suppl.v of food and game fish, 



.*6,130 00 


.$6,040 00 


6,500 00 


5.7.38 89 


.5, .520 00 


4,720 06 


47,000 00 


46,377 29 


500 00 


499 74 


8,000 00 


7,453 21 


23,200 00 


26,632 98' 


34,965 00 


31,4.56 00 




215 222 


500 00 


498 80 


1,000 00 


990 30 


5,000 00 


4,096 98 


$138,315 00 


$134,719 47 



Balance from extraordinary expenses. 



- Balance from 1013. 



Organization. 
The work of the department is under the control of three 
commissioners, appointed b}' the Governor, with the advice and 
consent of the Council, for terms of five years. The commis- 
sioners are co-ordinate in authority and select one of their num- 
ber to serve as chairman. The chairman devotes his full time 
to the work of the department, while the other two members 
serve part time only, being actively engaged in private business. 
The salaries of the commissioners are fixed by the Governor and 
Council. The personnel of the commission is as follows: — 



10 



FISIIKHIKS AND GAME. 



April, 



dcorm' W. licld, cliainuaii, Sharon; S.'ifHX); tcini cxpircfl in Dccom- 
hev. 1914. 

(loorpo H. Clrahani, Spriiij^fifUl; -So per dav for cadi day except Sutiday.s 
and liolidays; term expires 1916. , 

William C Adams, Boston; $5 per day for each day except Sxmdays 
and holidays; term expires 191S. 

The department has 77 officials and employees who are organ- 
ized into an office force and 13 other groups or divisions each 
of which is in charge of an official directly responsible to the 
commissioners. The names of the several divisions and the 
number of officials and employees in each are shown in the fol- 
lowing summary: — 



Commissioners, 

I. Clerks and stenographers, 

II. Biologist and a.ssistant, . 

III. l^i vision for enforcement of law, . 

1\'. Wilhraham game farm, . 

\'. Sutton hatchor^' 

\'I. Palmer hatchery, 

MI. Sandwich hatcher>', 

\'III. Sandwich hatchery (bird farm), . 

IX. Adams hatchery, .... 

X. Martha's Vineyard Reservation, . 

XI. Sharon Reservation, 

XII. Marshfield Reservation, 

XIII. Norfolk State Hospital Reservation, 

XIV. Hadley hatchery (not in use). 



3 
(i 
2 
2S 
4 
7 
9 
7 
3 
1 
3 
1 
1 
1 
1 



A detailed statement showing the several classes of officials 
and employees and their rates of compensation is given as an 
appendix to this report. 

The work antl organization of the department are further 
described under the titles (a) "Central Office," (b) "Enforce- 
ment of Law," and (c) "Propagation and Distribution of Fish 
and Game." 

Centr.\l Office. 

In addition to such administrative work as is performed by 
the commissioners, the office work consists of routine clerical 
and stenographic Avork, keering records and accounts, and the 
receipt of revenue from hunters' licenses^ issued by city and town 
clerks. The office force comprises the following: — 



• For amount of receipts in 1912, 1913 and 1914, see .Appendix B. 



1915.1 



HOUSE — No. 2133. 



11 



Clerk- in charge, 
Stenographer, 
Stenographer, 
Bookkeeper, 

Stenographer (teniporarj-) , 
Office boy, . . . - . 



$1,500 00 yr. 
85 00 mo. 
75 00 mo. 
62 50 mo. 
50 00 mo. 
25 00 mo. 



The appropriations and expenditures for the commissioners' 
salaries and traveling expenses and for the office during 1914, 
were as follows: — 





Appropriations. 


Expenditures. 


1. Compensation of commissioners, ..... 

2. Expenses, 

3. Clerical services 


$6,130 00 
6,500 00 
5,520 00 


S6,040 00 
5,738 89 
4,720 06 



Item 2, "expenses," was expended for the following objects: 



Books, periodicals, etc., . 






$65 22 


Photographs, taxidermic work, etc., 






153 97 


Postage and expressage, . 






559 31 


Printing, 






644 65 


89,500 hunters" licenses (5 kinds), 






613 10 


Stationery, office supplies, etc., 






470 54 


Typewriters, 






193 00 


Telephone and telegrams, 






466 46 


Expenses, delegates to conventions. 






462 21 


Traveling expenses : — 






George W. Field, .... 


$788 44 




William C. Adams, 


394 7e 




George H. Graham, 


520 3C 


1 


Automobile and hotel bills. 


283 5f 


1 


Employees' expense bills and mileage. 


123 3-^ 


[ 

2,110 43 









$5,738 89 

The commissioners' traveling expenses were paid in part from 
other appropriations, as enforcement of law, etc. 



Enforcement of Law. 
The enforcement of the fish and game laws costs approximate- 
ly one-third of the total amount expended for the Commis- 
sioners on Fisheries and Game. The statutes contain a large 
number of provisions relative to the protection and taking of 



IJ 



IMSHKIUKS AM) (;AMK. 



(April, 



fish and game, including many special statutes for particular 
localities. No codification of the fish and game laws has been 
inade subsequent to the enactment of the Revised Laws in 1902. 
Generally speaking, the laws prescribe the places, time and the 
kind of fish including sliellfish) and game which may be legally 
taken. The laws also contain provisions prohibiting the con- 
tamination of certain fishing waters, and other provisions relative 
to maintenance or use of ponds, brooks, rivers, etc. 

The different classes of violations of the fish and game laws 
during 1914, and the number of arrests for each class, are shown 
in the following statement: — 



Molations of fish laws: — 

losing over ten hooks. .... 

Fishing in stocked ponds. .... 

Illegal possession of pickerel in closed season. 

Illegal possession of short pickerel, 

Illegal possession of short bass, 

Illegal possession or taking of smelts, . 

Illegal taking of scallops, .... 

Illegal taking of fresh-water fisli, . 

Illegal taking of fish in Lynn Harbor, . 

Molesting or interfering with lobster traps. 

Possession of lobster car not marked with name 

Possession of seed lobsters. 

Possession of short lobsters. 

Possession ot short trout. 

Securing license througli misrepresentation. 

Setting nets illegally, .... 

Shipping lobster meat without a i)ermit, 

Violation of shellfish laws. 

Taking salmon in dosed season, 

Total 

Violations of game laws : — 

Failure to make returns of money, 

Hunting on the Lord's day, . 

Hunting without certificate, . 

Hunting, wounding or killing deer. 

Illegal killing of deer in open season. 

Hunting with ferret, 

Hunting on poste(' land. . 

Hunting on State reservation, 

Illegal i)ossession or hunting of game, 

Killing or possessing song or insectivorous birds, 



or address 



N'uniber of 
Cases. 

1 

7 

2 

.3 
19 
17 
22 
53 

4 

2 

3 

2 
29 
11 

2 



1 

72 

1 



2 

49 

107 

11 

1 
14 
30 

2 

35 
16 



1915.1 



HOUSE — No. 2133. 



18 



Violations of game laws — Con. 
Illegally killing rablits, 
Possessing or killing heron or bittern, 

Setting snares, 

Trapping illegally, ,. . . . 
Trespass on State reservation. 
Killing bull moose, .... 
Hunting with rifle during o^Den season on deer, 



Number of 
Cases. 



Total, 

Assault on oflfieer in performance of duty, * 
Carrj'ing concealed weapon, ' . . . 



Grand total, 



281 



547 



Of the arrests made in 1914, 519 were made by paid State 
deputies, 8 by unpaid State deputies, 7 by town game wardens 
and 4 by the chief of police in the town of O.xford. 

The amount of moneys collected in 1914 by the courts on 
account of the violations reported above amounted to $5,412.50. 

Organization. 

The force employed on the entorcement of law comprises a 
chief deputy, twenty-seven State district deputies, one special 
deputy and five superintendents of State hatcheries who are 
commissioned to serve as deputies in making arrests and in other- 
wise enforcing the laws. In addition to the State force just 
described the cities and towns appoint local game- wardens for 
the enforcement of law in their several localities. The State 
District Police also are authorized to enforce all fish and game 
laws, and they give particular attention to the enforcement of 
such laws in Buzzards Bay. The work is so divided as to leave 
the full responsibility for the enforcement of the fish and game 
laws in Buzzards Bay upon the District Police, as the Fish and 
Game Commissioners hold the opinion that their deputies should 
not investigate conditions in that locality, in view of the pro- 
visions made for such duty by another department. 

The Federal government has designated five of the State's 
district deputies as United States inspectors of migratory birds, 
and pays each of them at the rate of $12 per annum. 



1 Not a violation of a game law, but complained of by officere who made arrests for violations 
of game law.s. 



14 



FISIIKKIlvS AND (lAMK. 



April, 



Tlie names and residences of the State deputies and the number 
of arrests made l)y each in 1014 are shown in the following 
statement: — 

Salaried Deputies. 



DlHTRIlT Nl'MBKR. 


Kmidence. 


Name of Deputy. 


Salaries 
(Year). 


Number 

of 
Arrests. 


1, . . . 


Nantucket, 


.Jones, Wni. H., 


$1,200 




:-. 


KdKartowii, 


Keniston, Allan, 


1,200 


2 


:t, 


Harwich, . 


Mccarta. Everett B..' 


1,200 


42 


i 


New Bedford, . 


Lowe, Samuel .7., 


1.200 


14 


0, 








, Taunton, . 


David, Allen A.,' 


1,200 


2.1 


0. 








MiddlcborouKli. 


Pratt, Nathan W.. . 


1,200 


18 


7. 
8. 
9. 








Brockton, 


Tribou, Chas. E., 


1,200 


73 








East Fox borough. 


I.*onarcl, Wm. H., . 


1,200 


17 


10, 








i Framingham, . 


Bemis, James E., 


1.200 


23 


11. 








East Boston, 


Goodwin, Fred W.,> 


1.200 


50 


12, 








' Gloucester, 


Grant. Carl E..' 


1,200 


21 


13. 








Andover, . 


Larkin, Walter A, . 


1,200 


17 


1 ^ 








! West I,ynn, 


Burney, Thomas L., 


1,200 


26 


10, 

16, 








North Grafton, 


Macker, Elmer A, . 


960 


IS 


17, 








' Worcester, . 


Snell, Jay, 


960 


30 


18, 








Fitchburg. 


Converse, Irving O., 


1.200 


4 


19, 








Gardner, . 


Stratton, A. L., 


1.200 


14 


20, 








Ware. 


Shea, Dennis F., 


1,200 


9 


21, 








1 Palmer, 


Luman, John F., 


1.200 


3 


22 








1 Springfield, 


Hatch, James P.. » . 


1.200 


21 


23. 








' Wcstfiold. . 


Monahan, Peter P., 


1.080 


19 


24. 








East ham pton, . 


McCarthy, Patrick, 


960 


14 


25, 








1 Greenfield, 


Ruberg, Lyman E., 


1.200 


6 


26, 








1 North Adams, . 


Nichols, Arthur M., 


1,200 


15 


27, 








Pittsfield, . 


Zeigler, Fred R., 


1.200 


17 


28, 








1 Lee 


Sargood, Wm. W., . 


1.200 


8 


At large, 






Andover, . 

1 


Piper, George W., . 


80 » 


1 



Also designated to serve as I'nitcd States inspector of migratory birds. 
Per month. 



1915. 



HOUSE — No. 2133. 



15 



Special Deputies. 



Residence. 


Name of Deputy. 


Number 
of Arrests. 


Interlaken, 

Fall River, . v . 

Byfield 

Fitchburg, 


Backus, Edw. E, Jr., 1 
Seaman, Wm. E.,1 
Steele. O'rrin D.,i . . 
Harvey, Myron E.,- 


8 
2 
2 



Appointed October 10. 



- Appointed April 6. 



Hatchery Superintendents. 



Residenxe. 


Name of Deputy. 


Salaries. 


Number 
of Arrests. 


Vineyard Haven, .... 

Sutton, 

East Sandwich, 

Palmer, 

North Wilbrahani 


Day, William, 
Merrill, Arthur, . 
Hitchings, F. E., 
Monroe, Otis, 
Mosher, Joseph H., 


SI, 200 yr.i 

1,200 yr. I 

112 mo. 

1,200 yr.i 

1,200 yr.i 


- 



1 With use of house. 



The management of the district deputies is vested at present 
in Chief Deputy Orrin C. Bourne, who receives a salary of SI, 500 
per annum. The chief deputy has his headquarters at the com- 
mission's office in the State House, where he spends the greater 
portion of his time, visiting the several stations and the district 
deputies only in connection with some special work or assignment 
which he is performing individually. No inspections are made 
for the purpose of directing the district deputies in their work, 
or investigating conditions in their districts, unless a complaint 
is made or some special reason arises for investigation. A weekly 
"narrative report" is sibmitted by each deputy in which a 
descnption of each day's work is given, including the time at 
which the deputy left home and returned, the places visited by 
him and the names of persons with whom he conversed. The 
three commissioners occasionally visit the district deputies, but 
no systematic plan for overseeing their w^ork is followed. The 
commissioners place the active management of the force to a 
great extent in Mr. Bourne's hands, and he issues orders, makes 
special assignments, etc. 

The city and town game w^ardens are appointed by the Com- 
missioners on Fisheries and Game upon written application made 



in 



FISHERIES AM) (JAME. 



April, 



hy the city government of <a city or the selectmen of a toAvn. 
The local game wardens have powers and duties identical with 
those of the State deputies, and "act under the authority and 
instruction of the commissioners." The annual compensation of 
each local warden, not exceeding $50, is paid hy the city or town 
hy which he is appointed. The Commissioners on Fisheries and 
Game require each local warden to suhmit to them a weekly 
narrative report similar to that made hy the State district 
deputies. 

Appropriaiion. 
The amount appropriated for the enforcement of law in the 
year 1914 was $47,000, of which $46,377.29 was expended for 
the following ohjects: — 



Deputies: — 
Services, as per pay rolls, .... 
Traveling expeases, 

Biologists : — 
Services, as per pay rolls, 
Travel, 

Reservations for birds and sjiecial work: 

Pay rolls, 

Travel 

General expenses: — 

Advertising 

Feed (corn, grain, etc.). 
Hardware, cement, etc., 
Legal an(l expert ser\"ices, . 

Motor, 

Photograplis. iiuips, etc., 

Printing, 

4,000 po.sters (3,000 cloth, 1,000 paper), 
Stationery, postage and sundries. 
Travel, mileage and expressage, 



$31,320 11 
11,490 29 





•3-t_,CllV7 t\J 


$1,B4'1 17 




491 58 






•~> \'i\ 7^ 




- . 1 O.J / o 


$150 00 




189 25 






339 25 




m2 3S 




66 22 




208 97 




88 25 




81 56 




89 00 




125 77 




151 28 




()4 50 




153 96 


1 not s^a 



S46.377 29 



The rates of compensation of the several deputies have been 
shown on a preceding page. In certain instances the salaries 
have been paid in part from the appropriation for the enforce- 
ment of law and in part from other appropriations. 

The appropriation for the enforcement of law was used in part 



1915. 



HOUSE — No. 2133. 



17 



for other purposes until the Commission on Economy and Effi- 
ciency made certain investigations relative to the appropriations 
for Fisheries and Game. At a hearing with the Commission 
on Economy and Efficiency on Aug. 25, 1914, Dr. Field, chair- 
man of the Commissioners on Fisheries and Game, stated as 
follows: — 

Up to last 3'ear "enforcement of law" was a term which covered a 
great many c'ifferent types of expenditure, — covered not only the people 
violating the law, but also the carrying out and caring for the work of the 
hatcheries, maintenance, etc. 

Q. You wouldn't consider that a proper caption, would you? For 
instance, you spent $72,363 in 1913 under the caption of enforcement of 
law, and over 55 per cent, was spent for maintenance. A. Yes. The 
attention of our department was not called to that matter until the Econ- 
omy and Efficiency Commission took the matter up, and since then the 
Auditor's department has made separate divisions, and we have tried to 
conform to that. 

Steamer "Lexington." 
For about six months each year, the District Police operate the 
steamer " Lexington " for the enforcement of law in Buzzards 
Bay, especially the seining and lobster laws. The force em- 
ployed on this steamer is made up as follows: 

Detective and captain of steamer, 
Engineer, .... 
Assistant engineer, . 
Steward, .... 
Deck hands (temporary). 
Deck hands (temporary). 
Deck hands (temporary) , 

During the six months when the steamer is not in commission 
the detective in charge is assigned to other work; the engineer, 
his assistant and the steward work on board the steamer, and 
the deck hands are not employed. The salary of the detective 
in charge is paid from the appropriation for compensation of 
detectives in the District Police, but all other expenses are paid 
from an appropriation made for the "Lexington," which in 1914 
was $9,500, and of which $9,475.27 was expended. Two viola- 
tions of the lobster laws were detected by officers of the " Lex- 
ington" in 1913 and one violation in 1914. No other arrests for 
violations of fish and game laws were made by officers on the 
"Lexington" during 1913 or 1914. 



p as 


tollows: — 




. 1, at $2,000 yr. ' 




. 1, at 1,200 yr. ' 




. 1, at 840yr. 1 




. l,at 840yr. 1 




. 4, at 35 mo. ^ 




. 2, at 33 mo. ' 




. 2, at 12mo. 1 



1 Receive maintenance while steamer is in commission. 



IS FISHERIES AND (V\ME. [April. 



Propagation' axi> Distribution of Fish and Game. 

The law provides that the authority of the Commissioners on 
Fisheries and (lame shall extend to the propaj^ation, protection 
and preservation of birds, animals and fish. The work of the 
commission with respect to the shore fisheries and shell fisheries 
is largely one of enforcement of law for the protection of natural 
sources of supply. The commissioners have, however, employed 
a biologist to conduct investigations of the mollusk fisheries of 
the Commonwealth, and have issued reports on the results of 
his investigations. 

In the case of inland fisheries and game, the commissioners are 
engagefl in the propagation and distril)ation of stock. For this 
purpose the following game farms and fish hatcheries are now 
maintained by the Commonwealth: — 

1. Fish luitchory and game farm at Sutton, established in 1892. 

2. Fish hatchery at Adams, estaljlished iu 1898. 

3. Game farm at Martha's \'ineyard, established in 1908. 

4. Fish hatchery and game farm at Sandwich, purchased from Sandmch 

Trout Company in 1912. 

5. Fish hatchery and game farm at Palmer, established in 1912. 

6. Game farm at AVilbraliam, leased in 1912, purchased in 1913. 

7. Game reservation on grounds of the Norfolk State Hospital, established 

in 1913. 

At each of the above stations the Commonwealth owns land 
and buildings, and at Sandwich, Martha's \ ineyard. Palmer and 
Wilbraham privately owned land is rented for use in connection 
with that owned by the Commonwealth. The State operated for 
several years a hatchery at Hadley, but this station was discon- 
tinued because of unsatisfactory water supply. The property at 
Hadley is now for sale, as authorized by chapter 49 of the Re- 
solves of 1912. In an appendi.x to this report, detailed informa- 
tion relative to the acquisition of land and buildings at each 
game farm and fish hatchery is given. 

The Commissioners on Fisheries and Game are authorized by 
chapter 410 of the Acts of 1911 to establish State bird and game 
preserves, and for this purpose they may "acquire in fee by 
purchase, gift or devise, or may lease, or, with the consent of the 
owners, nuiy control any land, water or shore or the right to use 
the same, including the right of the public in such land or on 
such water or shore, as a bird and game preserve." Under this 
authority twenty-one game preserves have been established 



1915. 



HOUSE — No. 2133. 



19 



throughout the Commonwealth. On two of these preserves paid 
employees of the Commonwealth are stationed, namely, at the 
Sharon station and at the Marshfield reservation, which were 
brought under State control in 1913. 

The appropriations specifically made for the propagation and 
distribution of fish 'and game include the following for the years 
1914 and 1915: — 





19U. 


1915. 


Stocking great ponds, 

Establishment of fish hatcheries 

Propagation of game birds and animals 

Propagation of food fish, 

Ice house at Palmer hatchery, 

Piping Wilbraham game farm 

Increasing supply of food and game fish 




$500 

8,000 

23,200 

34,965 

500 

1,000 

5,000 


$500 
8,000 

i 66,080 

1 






?73,165 


$74,580 



The salaries and expenses of the biologist and his assistants, 
which amounted to $2,135.75 in 1914, are paid from the appro- 
priation for the enforcement of laws. In 1914 an expenditure of 
$339.25 for reservations for birds was also made from the appro- 
priation for enforcement of law\ 

The amount of money spent in 1914 for the propagation of 
food fish and game birds, including a proportionate part of the 
salaries and expenses of the commissioners and office force, was 
approximately $82,770. 

The following tables summarize the production of fish and 
game, as reported to the Commissioners on Fisheries and Game 
by the superintendents of the stations: — 



Fish hatched and distributed b;i Hatcheries under Control of Commissioners 
on Fisheries and Game, 1914-. 



Station. 


Pike. 


Perch. 


Salmon. 


Bass. 


Trout. 


Adams Hatchery, 
Palmer Hatchery, 
Sandwich Hatchery, . 
Sutton Hatchery, 


16,750,000 


8,150,000 


34,000 
11,000 


64,000 


590,000 

26,000 

1,112,750 

1,184,400 


Totals, .... 


16,750,000' 


8,150,0001 


45,000' 


64,000 


2,913,150 



Number of fish from eggs produced at stations, .... 

Number of fish from eggs received from United States government, 

Total of all fish distributed, 



2,977,150 
24,945,000 



1 The eggs for these fish are secured from the Federal government hatcheries without cost. 

2 Fish fry, except about 729,000 fingerlings and 14,150 adult fish. 



20 



FISHERIES AND rTA:\IE. 



April, 



ProducliuH of Gome Birds at Stations wider the Control of the Commissioners 
on Fisheries and Game, 1914- 



Station. 



Wild 
Turkeys. 



Ducks. 



Quail. ' Pheasants. 

i 



Norfolk, 

East Sandwich, ' 
Sharon, 
Sutton, 
Wilbraham, 
Totals, . 



654 

576 



202 

234 
569 
925 



22 



1,326 



—39 



1,930 



The Martha's Vineyard Reservation is maintained for heath hens, but the number cannot be 
accurately reported as the birds are wild. 
No figures on production at Marshfield are available. 

Information relative to tlie property, number of employees 
and the production at each game farm and fish hatchery OAvned 
by the Commonwealth is given in the following statements: — 

Sutton Hatchery. — The State property at Sutton consists of 
23 acres of hilly and rather barren land, a wooden house for the 
superintendent, a barn, a wooden building for a hatchery, a 
small wooden camp for two of the employees, a small ice house, 
together with coops, cages, etc., for the birds. 

At the present time there are five premanent men employed 
at the hatchery: a superintendent at $1,200 a year and use of 
house and barn; 2 assistants at $50 a month; 1 at $55 a month; 
and one at $30 a month and board. Temporary laborers are 
hired from time to time and paid by the day. 

No accurate records are kept of the number of birds and 
fish sent out from the hatchery, but the superintendent estimated 
that there were liberated or shipped during the year 1914, 654 
ducks, 569 pheasants, 11,000 salmon and 1,184,400 trout. These 
figures differ from those given in the Fish and Game C'ommis- 
sion's report on output of stations. 

The total cost of maintenance for the year 1914 was $9,799.85 
according to the figures of the commission. The superintendent 
stated that he is in the habit of selling eggs, chickens, etc., and 
using the money to pay for grain and feed. This is a common 
practice at the hatcheries. 

Adams Hatchery. — The State property at the Adams hatchery 
consists of 2 acres of land and a brick house for use as a hatchery 



' No records. 



1915.] HOUSE — No. 2133. 21 

measuring 35 by 40 feet. The superintendent, who receives $240 
a year, is the only paid employee. 

There were hatched and distributed in 1914, 590,000 trout 
fry, and the total cost of running the hatchery was $350.11. 

Martha's Vineyard Reservation. — The reservation at Martha's 
Vineyard consists "'of 600 acres of land, with a house and barn 
owned by the State and 1,000 acres of leased land. 

At the present time the State employs a superintendent at 
$100 per month and use of house, and two temporary laborers, 
one at $45 per month and one at $35 per month. The total 
expenditures for the farm during 1914 were $5,061.93. 

Heath hens are the only game raised at this reservation. It is 
impossible to ascertain the number, since the heath hens are 
wild, but the superintendent estimates that there are at present 
nearly 1,000. None have ever been shipped from the farm. 

Sandwich Hatchery. — The State property includes 21 acres 
of land at Sandwich and 4^ acres at East Sandwich, a hatchery 
house on each property and fish pools. In addition, the State is 
renting at East Sandwich the Nye farm at $225 a year and the 
Hitchings farm at $300 a year. The property at Sandwich is 
used for a fish hatchery and that at East Sandwich for both a 
fish hatchery and game farm. The superintendent of the hatch- 
ery, Mr. Hitchings, lives in the Hitchings house at East Sand- 
wich, which is rented by the State and is located five miles from 
the hatchery at Sandwich. At the present time no employee is 
located at the Sandwich hatchery at night. Seven men are 
emplo^'ed at the hatchery as follows: — 

One superintendent at $1,200 per year, with house rent, milk and farm 

produce. 
One bird culturist at $1,200 per year, with house rent. 
One man at $65 per month. 
Two men at $50 per month. 

One man at $50 per month, with house rent and farm produce. 
One helper at $2 per day. 

The bird culturist and the $2 a day helper are employed on 
the game farm at East Sandwich, and the other men are em- 
ployed at the fish hatcheries. 

According to figures submitted by the Fish and Game Com- 
missioners the expenditures for the fish hatchery alone in 1914, 
including expenditures for construction work, were $12,917.32. 

Figures submitted by the superintendent indicate that 1,112,- 



22 FISHERIES AND GAME. [April, 

ToO tr()\it were ])ro(luceil at the liatclu-ry during 1914. There 
were also produced and shipped to other hatcheries 1,500,000 
trout eggs. The superintendent reports that no record was kept 
of the birds raised on the farm during 10 1-1. 

Palmer Ilaichrri/. — The State property at the Palmer hatch- 
ery ^consists of '2'.V.i acres of land, 3 houses, 1 hatchery, 1 ice 
house, together Aviih (hims, pools, etc. The estimated value of 
the entire plant, based upon figures submitted by the Commis- 
sioners on Fisheries and Game, is 827,625. No accurate figures 
as to the cost of the buildings can be compiled, as no record was 
kept of the time that the superintendent and other employees 
spent on construction work. 

At the present time there are five regular employees at the 
hatchery: the superintendent, who receives SI, 200 a year, house 
rent and farm produce; an assistant superintendent, who receives 
$65 per month, house rent and farm produce; a fish ctdturist, 
who receives $60 per month, house rent and farm produce; a 
driver, who receives $50 per month, house rent and farm produce; 
and the superintendent's son, who is paid on an hourly basis, 
and who received $486 for services between Dec. 1, 1913, and 
Feb. 28, 1915, although he attended school regularly. 

According to the figures submitted by the superintendent 
there were distributed from the hatchery during 1914, 16,750,000 
wall-eyed pike fry, 8,150,000 yellow perch fry, 12,000 black bass 
fry, 52,000 black bass fingerlings, 26,000 brook trout fingerlings 
and 34,000 salmon. With the exception of the bass and trout 
the fish were hatched from eggs furnished by the United States 
government. 

The total expenditures, including those on construction 
account, for the hatchery during 1914 were $15,845.69, accord- 
ing to figures submitted by the commissioners. 

Wilhraham Game Farm. — The State property at Wilbraham 
consists of 132 acres of land, 2 houses, 2 barns and sheds, and 
coops, etc., for the game. 

At the present time there are four employees: a superintendent 
at $100 per month, with house rent and farm produce; the super- 
intendent's son at $55 per month, with house rent and farm 
produce; one laborer at $2.50 per day, and one at $2 per day. 

During 1914, 300 mallard ducks were distributed from the 
farm. The superintendent estimated that he had raised during 
the year 925 pheasants, 576 ducks and 22 turkeys. 

The expenditures for the game farm, including purchase of 
land and construction, for the year 1914 were $14,884.61. 



1915.] HOUSE — No. 2133. 23 

Norfolk State Hospital Reservation. — The game reservation 
at Norfolk is located on the grounds of the Norfolk State Hos- 
pital. At the present time the Fish and Game Commission 
employ only one man at the reservation, the superintendent, a 
former inmate of the State hospital, who receives $50 per month 
from the commission and his house and supplies from the 
hospital. All work, other than that done by the superin- 
tendent, is performed by the inmates of the State hospital. 

According to figures submitted by the superintendent, 202 
pheasants and 8 ducks were raised during 1914. 

The cost of running this reservation cannot be accurately 
figured, as part of the expense is borne by the Fish and Game 
Commission and part by the Norfolk State Hospital, which 
furnishes all extra help and supplies but keeps no record thereof. 
The amount expended by the Fish and Game Commission during 
1914 was $1,678.02, according to figures submitted by that com- 
mission. 

Marshfield Reservation. — The reservation at Marshfield con- 
sists of 5,000 acres of privately owned land, the control of which 
was taken over by the State, as authorized by chapter 410, Acts 
of 1911, under an agreement with the owners for a period of five 
years. According to a statement of the superintendent of the 
reservation no difficulty will be experienced in obtaining the 
consent of the owners to extend the time indefinitely at the ex- 
piration of the present term. The State's property consists of 
hen houses and coops, which are constructed so that they can 
be readily moved from place to place. A superintendent, at a 
salary of $600 per year, is the only regular employee. Ducks, 
geese and pheasants were raised during 1914, but no figures as to 
quantity are available. Quail and other birds were fed and pro- 
tected at the reservation. 

Sharon Station. — The station at Sharon is located upon prop- 
erty owned by the sister of the chairman of the Commissioners 
on Fisheries and Game. The equipment, such as coops, wire, 
fencing, etc., is the property of the State. No rent is paid for 
the use of the land. 

At the present there is only one employee, the superintendent, 
who receives $70 a month. Temporary help is employed from 
time to time, on a per diem basis. 

According to the statement of the superintendent there were 
raised at the farm during 1914, 88 ducks, 6 quail and 234 pheas- 
ants. 



24 FISTTKRIKS AND (h\MK. [April, 



3. C'RITICISxMS AND RECOMMENDATIONS. 
Reorganization of the Commission. 
The present plan of a commission of three members having 
co-ordinate authority, and selecting one of their number to serve 
as chairman, is unsatisfactory, as has been pointed out in a re- 
port made by the Commission on Economy and Efficiency to 
the General Court under date of Jan. 29, 1913. Some of the 
more important disadvantages in the present plan are the follow- 
ing: — 

1. Division of authority with resulting division of responsi- 
bility, the chairman having no statutory standing as chairman. 

2. The cliairmau is selected by a vote of his colleagues, and, 
accordingly, must feel he is under a. greater degree of responsibil- 
ity to them than to the Governor. 

3. With one full-time and two part-time commissioners it is 
impossible to make any eflfective division of executive or adminis- 
trative work among the three men. 

4. Prompt and effective executive action by the three members 
is impossible, since two of them serve part time only. The part- 
time members are allowed S5 per diem as compensation for each 
day of actual service, but in fact claim and receive compensation 
for each day in the year, except Sundays and holidays. 

5. The administration of the department's work is extremely 
lax, and this faulty condition can best be corrected by a reor- 
ganization so as to establish a clear-cut line of authority from 
the head of the department down through each subordinate. 
With subordinates subject in equal degree to the authority of 
three commissioners, two of whom are only part-time officials, 
it is impossible to secure efficient administration. 

To correct the unsatisfactory conditions just described it is 
recommended that the law be amended so as to provide for a 
single Commissioner on Fisheries and Game, to be appointed by 
the Governor, with the advice and consent of the Council, in 
place of the present board of three men. The salary of the com- 
missioner should be fixed by law. 

As shown in the section of this report describing the present 
conditions of game farms and fish hatcheries (pages 45 to 47), 
these stations have been conducted with wholly inadequate di- 
rection on the part of the commissioners. In order to correct 
this unsatisfactory condition it is re(?ommended that a deputy 
commissioner be appointed for the specific duty of directing the 



1915.] HOUSE — No. 2133. 25 

work of the game farms and fish hatcheries. The law providing 
for the appointment of this deputy should stipulate that an ap- 
pointee must have had training and experience in the work of 
propagation and conservation of game birds and fish. The 
deputy should be appointed by the commissioner, and the 
deputy's salary should be fixed by the commissioner; subject to 
the approval of the Governor and Council. 

With the changes in organization here recommended, namely, 
the substitution of a single commissioner for the present board, 
and the appointment of a deputy to have immediate direction 
over the game farms and fish hatcheries, together with the re- 
tention of a deputy to have immediate direction over the en- 
forcement of laws, it is believed that a satisfactory plan of 
organization for conducting the work of the department will be 
proAdded. The question of continuing the department as a 
distinct branch of the State government, or of making it a bureau 
or division in a newly formed Department of Agriculture, should 
be postponed for consideration at a later time. The reorganiza- 
tion here recommended should be made whether the department 
is to remain distinct or is to be merged into a Department of 
Agriculture. The organization changes suggested are essential 
for the proper internal management of the work wherever placed 
in the State organization. 

Finances and Accounts. 

Appropriations. — The arrangement of appropriation acts is of 
great importance in securing efficient administration of a depart- 
ment. If the appropriations are so granted as to show clearly 
the amount available for each principal class of work, and for 
each main division of the department, it is much easier to deter- 
mine whether the departmental officials have complied with the 
intent of the appropriation act and have efficiently administered 
their department. In the case of the Commissioners on Fisheries 
and Game there are two main functions or classes of work, 
namely, the enforcement of laws relative to game and fish, and 
the propagation and distribution of fish and game birds. It is 
of primary importance to know what each of these two functions 
costs. It is also important to know the overhead or general ex- 
pense of the department, and the expense of maintaining each 
station established for the propagation and distribution of fish 
and game. 

The appropriations as granted in former years, and as drafted 



26 FISHERIES AND GAME. [April, 

for 1915, show only sonu' of the information necessary for a 
proper consideration of the department. A greater fault, how- 
ever, lies in the methods which have been followed by the com- 
missioners in utilizing the appropriations; for example, the ap- 
propriation for the enforcement of law has been used for the 
totally different work of developing fish hatcheries and game 
farms. In order to insure the expenditure of the State's money 
according to a definite plan, and for such purposes as have been 
stated to the Legislature when requesting appropriations, it is 
recommended that the appropriation act stipulate that moneys 
granted for any single purpose, may be used for that purpose 
only, nnd that future appropriations be made in accordance with 
some such plan as the following: — 

1 . Central office : — 

(o) Salaries of commissioner and office force. 

(6) Traveling expenses of commissioner and office force. 

(c) Printing. 

(f/) Office supplies. 

(e) Office equipment. 

2. Enforcement of laws : — 

(fl) Salaries. 

(b) Traveling expenses. 

(c) Supplies. 

3. Propagation and distribution of fish and game: — 

(a) Salary and expenses of deputy. 
(6) Salaries and expenses of biologists. 

(c) Sutton hatchery. 

(d) Samhvich hatcher}'. 

(e) Palmer hatcher}'. 
(/) Adams hatchery. 

ig) Martha's Vineyard Reservation. 

(h) Norfolk State Hospital Reservation. 

(0 Marshfield Reservation. 

(j) Other game preserves. 

(k) Development of shore fisheries (including purchase of lobsters 

^vith eggs). 

(0 Miscellaneous. 

The granting of appropriations in this or similar form, with 
the preparation of a proper accounting report at the end of each 
year, would provide for efficient administration and for adequate 
financial analyses for succeeding Legislatures. 

The appropriations listed above are to be restricted absolutely 
to administration, maintenance and operation, and are not to be 



1915.] HOUSE — No. 2133. 27 

used for construction. They may, however, properly be used 
for replacements, provided the new equipment and structures 
are not materially greater in cost than those which have become 
worn out. Separate appropriations should in all cases be made 
for all extensions, additions, new construction or other capital 
oatlays. Each of"^ these appropriations should be specific, and 
should be available only for the purpose specified. This is in 
marked contrast to the plan heretofore followed of allowing 
$8,000 a year for five years, nominally for the establishment of 
fish hatcheries, but in fact used for any purpose, whether 
new work, maintenance, operation or administration, and in 1914 
being used for maintenance of the hatcheries at Palmer and 
Sandwich. 

Office Accounts. — The clerical work now performed in keeping 
accounts is sufficient to produce much more satisfactory results, 
provided efficient accounting methods are adopted. If the spe- 
cific recommendations for improvements in methods here made 
are properly followed, no additional clerical services will be re- 
quired, and the accounting work will be substantially improved. 

With the exception of records of output and stock at the sta- 
tions, the books of accounts should be kept at the central office, 
and all bookkeeping work done there so far as possible. Transac- 
tions relating to game farms and fish hatcheries in all cases should 
be stated on accounting documents which have been certified or 
otherwise approved by the superintendents or other officials 
having definite and first-hand knowledge of the facts. At the 
game farms and fish hatcheries careful records of quantities of 
fish, birds and farm produce should be kept. The only financial 
records needed at the stations are files of duplicate copies of 
such documents as are handled by the superintendents, including 
purchase orders for such goods as are ordered by them, requisi- 
tions made on the central office, sales slips, etc. 

The present accounting methods in the commissioners' office 
are unsatisfactory and should be improved in the following 
respects: — 

1. A ledger account should be kept for each appropriation, showing all 
receipts and all expenditures in summary form. 

No book record is now kept for the purpose of showing the 
condition of each appropriation, but only a statement or report 
form (erroneously styled a "balance sheet"), which is not well 
devised for keeping an accurate record of the status of each ap- 
propriation. 



28 FISHEUIES AND (JAME. [April, 

2. Tho classification of expenditures into expense and capital items 
should he made currently and by some one having knowledge of the facts. 
Moreover, a property account should be currently kept for the buildings 
and permanent improvements at each fish hatchery and game fann, and 
a stanilard classification of expenses adopted for the detailed analysis 
book. 

The present classification of expenditures on capital account 
is exceedingly crude, being made up at the end of the year by 
one of the clerks who reviews the expenditures and picks out 
such items as appear to her to constitute capital expenditures. 
The expenditures which are thus classified were made throughout 
the year for work performed or goods used at the game farms 
and fish hatcheries, and the expenditures are so reported as to 
make it impossible for any one, no matter how skillful an ac- 
countant, to differentiate capital items from expense items by 
reviewing the records at the close of the fiscal year. 

3. A record should be kept of cash advanced from the State treasury to 
the clerk in charge of the office. 

At present he keeps no record, but relies wholly upon his 
subvoachers when preparing the statement of expenses which he 
submits from time to time to the Auditor's office for settlement. 
The office cash is not kept distinct but is merged with other 
moneys. In the absence of any record it is impossible to tell 
the amount of State's cash for which the clerk is responsible, 
except by listing such subvouchers as he is able to produce. The 
State may not be in danger of losing under this method, but such 
a loose business practice should not be continued. 

4. The equipment account, showing the quantities of equipment pur- 
chased for or issued to each of the stations, is now kept in such a way as to 
require an unnecessarily large amount of clerical work. 

Cards or a loose leaf record book should be adopted which 
will be so planned and ruled as to provide a card or sheet for 
each article of equipment, with columns for date, reference to 
invoice number, quantities, stations, etc., thus making it neces- 
sary to enter only figures; whereas under the present method an 
unnecessary amount of writing is performed. 

5. The present methods of preparing financial reports or statements for 
various purposes should be simplified. 



1915.] HOUSE — Xo. 2133. 29 

At the end of each year a large number of financial reports 
or statements are prepared, containing some useful information, 
but an unnecessar}- amount of work is involved, since these 
reports to a large extent are not prepared according to a definite 
reporting plan. If an adequate classification or analysis of the 
expenditures were devised, accounts could be so kept as to enable 
statements or reports to be readily prepared from the accounts. 

Records at Far77is and Hatcheries. — No accurate records are 
kept at the farms or hatcheries as to the cost of construction or 
of maintenance and operation, and at several stations where 
efforts are made to keep records the figures differ materially from 
those prepared in the office of the commission. With a proper 
system of administration and accounting in the central office no 
financial records, other than files of accounting documents, should 
be kept at the game farms and fish hatcheries. The central office 
should furnish each superintendent from time to time with a state- 
ment or report showing the status of the appropriation or allot- 
ment for his station. Accurate records of all game, fish and farm 
produce should, however, be kept at each station, together with 
duplicate copies of requisitions, purchase orders, sales slips, etc. 

The superintendents have failed to keep records of the pur- 
chase of goods and of bills paid by them. Moreover, regular 
employees are frequently placed on construction work and no 
record kept of the time spent on such work. For instance, at 
Sandwich last year a number of concrete pools were constructed, 
and regular employees were used in the work, but no record of 
the time was kept. At the Palmer hatchery, where the son of 
the superintendent is hired to keep records, the men were used 
in construction work, but no figures are available showing the 
time employed on that work. The same conditions exist at 
other stations. The superintendent at Sutton stated that while 
he has felt the need of records for some time he has never re- 
ceived any instructions from the commission and therefore has 
never kept any. The failure to keep time records, files of bills 
or vouchers for goods purchased, duplicate copies of purchase 
orders, and accurate records of the production at the game farms 
and fish hatcheries is open to criticism. In order to correct these 
unsa'tisfactory conditions the following recommendations are 
made: — 

1. Whenever a superintendent is authorized to purchase goods he 
should use a form of purchase order similar to that used in the commis- 
sioners' office. 



30 FISHERIHS AND CJAMK. [April, 

This ordrr should l)i' iiiadc in triplicate, one copy being sent 
to the person who is to furnish the goods, one copy being for- 
warded to the office of the Conunissioners on Fisheries and Game 
with the bill or invoice, and the third copy retained by the 
employee ordering the goods. At present no record is kept by 
the superintendents of goods ordered by them. 

2. Daily time reports should be kept. 

These reports should indicate the amount of time chargeable 
to each class of work, such as caring for fish, caring for game 
birds, farming, repairs and replacements, and construction work. 
Statements summarizing such reports might be submitted to the 
office weekly as a part of the narrative reports, or might be 
submitted monthly. Time records would be of material assist- 
ance in insuring efficient administration as well as furnishing a 
basis for analyzing the pay rolls and determining the cost of 
different classes of work. 

3. Records should be kept of the quantities of all birds, fish and farm 
produce raised. 

These records should show the use or disposition made of all 
birds, fish and produce raised during the year or on hand at the 
beginning of the year. 

4. Bills for goods purchased by the superintendents should be certified 
as to the quantity of goods received, the quafity and condition of the goods 
and the correctness of prices. 

It was stated by an official of the commission that it has been 
the intention to require the superintendents to certify as to the 
correctness of bills. This practice should be adopted so that 
responsibility may be definitely placed for the correctness of all 
bills incurred by the superintendents of stations. Moreover, 
each superintendent should indicate on each bill or invoice the 
amount chargeable to expense and the amount chargeable to 
capital account. 

Receipts from Sales at Hatcheries. — Cash received from sales 
made by the superintendents of game farms and by other .em- 
ployees should, whenever practicable, be forwarded to the office 
of the commission by the party purchasing the goods, and the 
superintendent or other official making the sale should submit a 
statement of sale to the office showing the amount due. As a 
rule, the superintendents should sell produce only on authoriza- 
tion from the central office. The necessitv for central control 



1915.] HOUSE — No. 2133. 31 

over the collection of revenue is as great as the need for control 
over expenditures. Heretofore the superintendents have sold 
farm produce and other goods, held the cash so received, and 
utilized it for the paj^ment of bills contracted by them for the 
Commonwealth, and absolutely no accounting, either for the 
cash sales or for tKe bills settled with such cash, has' been made 
either to the commissioners' office or to the State Auditor. 
Moreover, in one case the superintendent of a hatchery, when 
visited by agents of the commission, was unable to account for 
approximately $90 which he received from the sale of produce. 
Subsequently, the superintendent stated that the $90 in question 
had been expended for grain, but no receipted bills or vouchers 
of any sort have been produced in connection with this trans- 
action. 

Receipts from Hunters' Licenses. — Cash received from the issue 
of hunters' licenses by city or town clerks, which amounted to 
$64,966.85 in 1914, should not be received by the chief clerk in 
the office of the Commissioners on Fisheries and Game, but the 
remittance should be made directly to the State Treasurer's 
office by the city or town clerks. Under the present arrange- 
ment the moneys received by the chief clerk are turned over to 
the State treasury once each month. The work necessary for 
the receipt and accounting for these moneys could be done to 
better advantage and probably with less expense to the Common- 
wealth in the Treasurer's office, and the money could be used to 
better advantage by the State if immediately placed in the State 
treasury rather than held temporarily in a separate account, 
although we recognize that the present practice is in accordance 
with existing law. 

Traveling Expenses of Commissioners. 
In general it may be stated that State funds have been ex- 
pended for personal expenses, such as travel between home and 
office, carriage from station to home, hotel expenses and meals 
in Boston, and fees. The expense accounts also include exces- 
sive telephone charges, expenses for lectures for which there is 
no authority and for unwarranted entertainment. Until re- 
cently full fare has been charged for all trips made by the com- 
missioners, when a substantial saving could have been made to 
the Commonwealth by the use of mileage. Members of the 
commission have made trips outside the State for which no 
authorization was granted by the Governor. Some of these 
abuses have been investigated by the Auditor's office, and small 



32 



FISIIKUIES AM) (lAMK. 



[April, 



iiniounts were refunded to the Commonwealth by Commissioners 
A(hiins Jind Field as a result of such investigation. 

Till' tra\elinjj expenses of the three commissioners for the year 
1914 amounted to §3,312.11, and were paid in part from the 
appropriation for traveling expenses and in part from the appro- 
priations for propagation of food fish, propagation of game birds, 
and enforcement of law. The following statement shows the 
amount expended by each commissioner for travel inside and 
• outside of the Commonwealth: — 

Traveling Expense^ (hiring 1914 <\f Commissioners on Fisheries and Game, 
(IS shoiCH by their Records. 



Total. 



In Mas- 
sachusetts. 



Outside the 

State. 



George W. Field, 
George H. Graham, 
William C. Adams, 
Totals, 



$1,453 71 

1,320 00 

538 40 



$3,312 11 



$859 71 

1,247 27 

462 87 



$2,569 85 



$594 00 
72 73 
75 53 



$742 26 



A statement relative to the expense accounts of each com- 
missioner, so far as paid from the appropriation for "traveling 
expenses," follows: — 

Dr. George 11'. field. 
Following is a summary of the expenses of Chairman George 
W. Field for the fiscal years 1913 and 1914, which were paid 
from the appropriation for traveling expenses: — 





1913. 


1914. 


Total. 


Railroad fares between Boston and Sharon, . 


$30 80 


$16 80 


$47 60 


Carriage hire, Sharon 


18 00 


11 25 


29 25 


Meals and hotel in Boston 


138. SO 


187 25 


325 75 


Electric car fares 


9 20 


11 13 


20 33 


Railroad fares other than between Bo.ston and 

Sharon. 
Carriage hire 


290 27 
45 69 


466 42 
77 20 


756 69 

122 89 


Meals and hotel, outside Boston 


265 19 


390 04 


655 23 


Telephone and telegraph , 


52 56 


38 94 


91 50 


Gratuities, 


12 10 


11 55 


23 65 


Fruit, 


3 94 


2 25 


6 19 


"White Rock," 


4 25 


3 05 


7 30 


Miscellaneous, 


9 53 


41 52 


51 05 


Totals 


$880 03 


$1,257 40 


$2,137 43 



1915.] HOUSE — Xo. 2133. 33 

The above table shows that $47.60 was spent for raih'oad fare 
between Dr. Field's home in Sharon and Boston during 1013 
and 1914. Dr. Field made a refund of $12.60 in Deeember, 1914, 
and a previous refund of $6.18, mostly on items of railroad fare 
betAveen Sharon and Boston. By a ruling of the Attorney- 
General these are not proper charges against the Commonwealth. 
In a conference with the chairman of this commission on July 21, 
1914, Dr. Field stated that these charges had been called to his 
attention, but that he considered them a matter of conscience. 

Moreover, Dr. Field has always charged the full single fare, 
namely 40 cents, for transportation between Sharon and Boston. 
One of three types of commutation tickets may be used between 
Sharon and Boston which makes the cost of a single trip 35, 28 
or 23 cents. At a hearing with the Commission on Economy and 
Efficiency on March 6, 1915, Dr. Field stated that he uses one 
of the three types of commutation tickets or the full fare (40 
cents) ticket, depending on the train on which he is traveling. 
From this it appears that Dr. Field has been overcharging the 
Commonwealth for travel between Sharon and Boston. 

During 1913 and 1914 Dr. Field charged $29.25 for carriage 
hire in Sharon. Inasmuch as Sharon is his home and the office 
is located in Boston this amount is an improper charge. Prior 
to the time when Dr. Field was notified by the Auditor's office 
that carriage hire in Sharon is an improper expense he charged 
on an average of three or four rides a month. 

Item 3, "hotel and meals in Boston," amounted in the two 
years to $325.75. Inasmuch as the office of the commission is 
located in Boston it would appear that this amount is wholly 
unwarranted. 

Railroad fare, exclusive of fares between Sharon and Boston, 
amounted to $756.69. A considerable saving in this amount 
might have been effected by the use of mileage. In some in- 
stances no authorization for travel outside of the State can be 
found. 

Charges for meals and hotel outside of Boston in the two years 
amounted to $655.23. This item includes two bills for expenses 
incurred in attending a convention in New Orleans in 1914. 
The first bill (Auditor's warrant No. 1366) includes charges for 
breakfast, lunch and dinner for each day from Nov. 16 to Nov. 
30, 1914, a total of $42.80 for the fifteen days. The second bill 
(warrant No. 1749, voucher 12) includes $26.60 billed directly 
by the St. Charles Hotel, New Orleans, for restaurant charges for 
the same period, namely, Nov. 16 to Nov. 30, 1914. When first 



;i4 



FISIIKRIKS AND GXMK. 



[April, 



(lUt'stionod regardinj; this apparent duplication in charges, Dr. 
rield stated that the amount (S26.00) hilled by the hotel was for 
his meals. Some flays later when questioned again regarding 
the aj)parent (hiplication in charges, Dr. Field stated that the 
amount l)ilhd by the hotel (S2().G0) was largely for a dinner 
given by him to some of the delegates to the National Associa- 
tion of Conservation Commissioners. It has been held by tlfe 
Auditor's office that State officials cannot expend their appro- 
priations for entertainment of visiting ofKcials, and it is our 
opinion that an expenditure for this purpose in New Orleans was 
improper. 

The telephone and telegraph charges for the past two years 
amount to $91.50. This includes calls from his home in Sharon 
to the office in Boston. 

The miscellaneous items include stenographer's fees, provi- 
sions, postage, etc., and amount in the two years to Sol. 05. 

Dr. Field lectures in different parts of the State, and charges 
the resulting expenses to the Commonwealth, although no 
authority for such practice is given by law. 

Grorffc II. Graham. 
Following is a summary of the expenses of George H. Graham 
for the fiscal years 1913 and 1914, so far as paid from the appro- 
priation for traveling expenses: — 



Electric oar fares, 
Rnilroad fares, . 
Carriage hire, 
Meals, 
Hotel, 

Telephone and telegraph. 
Miscellaneous, . 
Totals. 



1913. 


1914. 


Total. 


$4 45 


$11 45 


$15 90 


168 82 


274 85 


443 C7 


50 


54 70 


55 20 


8S 30 


170 75 


259 05 


40 85 


95 19 


130 04 


131 86 


2S0 35 


412 21 


4 60 


16 85 


L'l 45 


$439 38 


$904 14 


$1,343 52 



Mr. Graham's expenses for 1914 were more than double those 
for 1913. 

Mr. Graham has tAvo telephones in Springfield and charges up 
all calls on his home telephone and all toll calls on his business 
telephone to the Commonwealth. 



1915.1 



HOUSE — No. 2133. 



35 



Mr. Graham on one occasion charged for a trip outside of the 
State for which no authorization is shown. 

In connection with raih'oad fares it should be explained that 
Mr. Graham lives in Springfield, and a large part of this item 
it spent for attending meetings of the commissioners at Boston. 



William C. Adams. 
Following is a summary of the expenses of William C. Adams 
for the fiscal years 1913 and 1914, so far as paid from the appro- 
priation for traveling expenses: — 





1913. 


1914. 


Total. 


Car fares between Boston and his home, 


$5 83 


$S 68 


$14 51 


Meals in Boston 




U 45 


42 90 


54 35 


Electric oar fares, 










1 40 


3 47 


4 87 


Railroad fares, . 










39 68 


135 02 


174 70 


Carriage and auto hire, • . 










15 54 


76 48 


92 02 


Meals outside Boston, 










27 40 


95 25 


122 65 


Hotel outside Boston, 










9 90 


34 05 


43 95 


Telephone and telegraph. 










20 


37 86 


38 06 


Miscellaneous, . 










- 


6 90 


6 90 


Totals, 


8111 40 


$440 61 


$552 01 



Mr. Adams was appointed in August, 1913, so that his ex- 
penses for that year cover the period from August 7 to November 
30. 

Concerning the charges for fares between his home and the 
office it should be stated that Mr. Adams discontinued making 
such charges when they were c^uestioned by the State Auditor. 

With regard to the charges for meals in Boston there is a 
question whether any of these are proper charges, since Mr. 
Adams' business office and home were located in Boston. These 
charges amounted to .$54.35 for 1913 and 1914. 

In a conference with this commission Mr. Adams stated that 
he had twice been outside of the State without authorization, 
and had charged his expenses to the Commonwealth. 



AxxuAL Report. 
The latest annual report published by the Commissioners 
on Fisheries and Game is that for the year 1911. A consoli- 
dated report for the years 1912 to 1914, inclusive, is now being 



:ir, FISHERIES AND GAME. [April, 

prepared. The statutory provisions relative to the annual report 
of the Commissioners on Fisheries and Game are found in chap- 
ter 291 of the Acts of 1903, which reads as follows: — 

Section 1. The annual report of the board of coimnissioners on fish- 
cries and game shall hereafter include the year ending on the thirtj'-first 
day of December, and shall be submitted on or before the fifteenth day 
of January next following. 

Section 2. This act shall take effect upon its passage. 

This act is affected by section 1 of chapter 211 of the Acts of 
1905, which changed the fiscal year of all offices, departments, 
boards, commissions, etc., from December 31 to November 30, 
and which requires that — 

. . . the annual reports, of all officers, trustees, boards and commissions, 
except the report of the insurance commissioner and except those reports 
other\\isc provided for in this act, shall be made to the governor and 
council, or to the general court, as now required bj'^ law, except that they 
shall be made on or before the third Wednesday in Januarj', anything in 
any general or special statute now existing to the contrary notwith- 
standing. . . . 

The number of copies of the annual report is fixed at 2,000 by 
section 7 of chapter 9 of the Revised Laws. 

The following quotation is made from the stenographic report 
of a hearing held on March 0, 1915, with the Commissioners on 
Fisheries and Game: — 

Q. What does the law state upon that jioint as to the rendering of 
reports by your commission? A. It says they shall be rendered. I 
don't think it fixes the time; it has simply been phj'sically impossible to 
prepare them with such assistance as we have had. 

At another time during the same hearing it was stated by the 
chairman of the Commissioners on Fisheries and Game that 
"we have not published our report; we have not had the money 
available which would be necessary to publish reports." The 
latter statement is not an adequate reason for failure to publish 
an annual report in 1914, when there was an unexpended balance 
of S760 in the appropriation available for the printing of such a 
report. The cost of printing the annual report for 1910 and the 
special report on quahaug and oyster fisheries was $1,293.31, 
which was paid in 1912; the cost of the report for 1911 was 
S604.07, which was paid in 1913. 



1915.] HOUSE — No. 2133. 37 

The failure to publish annual reports for 1912 and 1913 was 
not due to any specific reason, so far as this commission can 
ascertain, but such failure was the result of carelessness, and is 
indicative of the general laxity which characterizes the adminis- 
tration of the department. 

Methods of Purchasing Supplies. 

At present, grain and other supplies for the game farms and 
fish hatcheries are purchased in small lots, and frequently the 
purchases are made by the superintendents of the Stations. 
Certain standard articles could with advantage be purchased in 
quantities by the central office on orders which call for shipments 
to the several stations. Such a method would procure the ad- 
vantage of competitive bids with lower prices than have been 
paid in the past, and exact specifications as to the quality of 
goods could be more effectively worked out than is possible under 
the present plan. This subject was called to the attention of the 
chairman of the commission, who agreed that economies might 
be effected by buying certain goods through the central office. 

It is recommended that a careful study be made so as to 
definitely ascertain what classes of goods may be purchased to 
better advantage by the central office than by the superintend- 
ents. 

Enforcement of Law. 

The present management of the deputies employed for the 
enforcement of law is open to severe criticism because of the 
wholly inadequate direction of their work by the commissioners 
or by the chief deputy. The chief deputy exercises but very 
limited control over the district deputies, and spends the greater 
portion of his time in the office in Boston. Moreover, such visits 
as he has made to stations and towns have not been for the pur- 
pose of directing the work of the district deputies but in connec- 
tion with some special work, such as assisting in shipments of 
fish, etc. It is evident that a force of twenty-eight district men 
scattered throughout the Commonwealth will not perform their 
work effectively when under slight supervision. The system of 
narrative reports now in use is excellent, but a system of reports 
is not adequate for insuring the proper performance of duties. 

The chief deputy in charge of the district agents should spend 
the greater portion of his time in travel, and onl}' the smaller 
part in the office at the State House. The increase in traveling 
expenses, resulting from adequate and close supervision over 



38 FISHERIES AND GAME. [April, 

tlu' force, woiild hriii^' results in increased efficiency which wouhl 
fully justify the expenditure. Close supervision on the part of 
the chief tleputy -svould benefit not only the work of the State 
district deputies, hut also that of the local wardens who, by pro- 
vision of liiw, "act under the authority and instruction of the 
conunissioners." 

The nuniber of arrests made by each deputy commissioner in 
1014, as shown on a preceding page of this report, ranges from 
to 73, and may lie summarized as follows: — 

1 de]nity made no arrests. 
deputies made from 2 to 9 arrests. 
10 deputies made from 10 to 19 arrests. 
5 deputies made from 20 to 29 arrests. 
4 deputies made 30 or more arrests. 

While the number of arrests made by a deputy does not neces- 
sarily indicate the effectiveness of his work, yet if a man assigned 
to a locality where extensive hunting and fishing are carried on 
fails to make arrests, it at least raises questions as to his effi- 
ciency. 

In District 1, which comprises Nantucket, and District 2, 
Avhich comprises Martha's Vineyard, it is evident that changes 
may be made to advantage. In District 1 the deputy made no 
arrests in 1914, and in District 2 the deputy made only two 
arrests, and yet it has been stated by the Commissioners on 
Fisheries and Game, and by other persons who are familiar with 
conditions, that the islands of Nantucket and ]Martha's Vine- 
yard require most careful policing, as there is a tendency for 
violations to occur there, particularly on the part of visiting 
sportsmen and summer residents. Such evidence as is available 
indicates that the laws have not been as carefully enforced as 
they should be. There is little or no excuse for any laxity, since 
a deputy is employed on each island at a salary of SI, 200 per 
year. 

On Martha's Vineyard the Commissioners on Fisheries and 
Game employ a superintendent of the game farm at SI, 200, and 
two farm laborers in addition to the district deputy. This force 
is unnecessarily large, and is relatively greater than that em- 
ployed in any other district. The duties of the superintendent 
of the game farm are principally to carry on farming operations 
so as to insure n supply of grain for the heath hens, and to 
properly safeguard the game farm, and, so fa^ as possible, the 
heath hens. These latter, however, are not confined on the 



1915.] HOUSE — No. 2133. 39 

j?ame farm but are at large on the island. Taking into considera- 
tion the size of the district as compared with other State dis- 
tricts, the nature of the work required of the superintendent of 
the game farm, and the assistance which is furnished him, this 
commission is of ithe opinion that the superintendent of the game 
farm can also act as district deputy, a position in which he had 
experience prior to his appointment as superintendent of the 
farm at Martha's Vineyard. 

Moreover, it is believed that Martha's Vineyard and Nan- 
tucket should be consolidated into one district for the enforce- 
ment of law. In order to properly police the two islands, the 
superintendent should be given an assistant deputy who Avould 
be available for duty on either island as directed by the super- 
intendent. For such work as would be required of an assistant 
deputy in this district, a competent man could be procured for 
materially less than $1,200, the salary now paid the deputy on 
Nantucket. While opposition may be advanced to the plan here 
proposed, the commission after careful consideration of the situa- 
tion has been unable to discover any real objection to the plan, 
which would effect a saving of at least $1,200 per annum in 
salaries, and in our opinion would insure enforcement of the law. 

As previously pointed out in this report, the appropriation for 
the enforcement of law under the Commissioners on Fisheries and 
Game has been used for many other purposes, such as the main- 
tenance and operation of game farms and fish hatcheries. This 
practice has to a large extent been corrected since questioned by 
the Commission on Economy and Efficiency, but it still exists to 
a limited extent. The expenditure from the appropriation for the 
enforcement of law of over $3,000 for biologists, reservations for 
birds, and certain other expenses is bad practice, even if not in a 
strict sense illegal. 

Another feature of the enforcement of law which should receive 
careful consideration is the maintenance by the District Police 
of the steamer "Lexington" for patrolling Buzzards Bay. Ex- 
clusive of the salary of the detective in charge, the amount 
expended for this steamer during 1914 was $9,475.27, or over 
21 per cent, of the amount expended by the Commissioners on 
Fisheries and Game for the enforcement of fish and game laws 
throughout the Commonwealth. In view of the limited area 
patrolled by this steamer, the cost is clearly excessive. The 
detective of the District Police who serves as captain of the 
steamer receives a salary of $2,000 per year, or $500 more than 
the chief deputy in charge of the twenty-nine deputies of the 



40 FISHERIES AND GAME. [April, 

Fish and (liiiiu- (Ominission. The officer's salary is clearly an 
excessive amount to pay a man who has sucii limited work as 
tiiat of captain of a steamer patrolling only Buzzards Bay. Of 
the force employed on this steamer, the engineer, his assistant 
and the steward are paid annual salaries sufficiently large for 
full-time service, but for about six months of each year they 
have no work other than making repairs and painting the steamer. 
The annual pay roll for this steamer is over SI, 500 larger than 
can be justified. Moreover, it is a grave question whether a 
steamer as large and as expensive to operate as the "Lexington" 
is needed for the enforcement of law, but it is perfectly evident 
that if such a steamer is to be used in this work she should patrol 
a much greater area than Buzzards Bay. Even with a material 
reduction in expense, this steamer should patrol, in addition to 
Buzzards Bay, all waters around Martha's Vineyard and Nan- 
tucket. 

Development of Shell Fisheries. 

The Commissioners on Fisheries and Game are of the opinion 
that the cultivation of moUusks may be made commercially 
profitable, and they further believe that extensive and satis- 
factory development can be had only under central State control 
of the shell fisheries. Their recommendation that they be given 
control over the shell fisheries, and their contentions as to present 
conditions and future development, have been set forth at length 
before legislative committees and elsewhere. 

On Jan. 29, 1913, the Commission on P>onomy and Efficiency 
submitted a report to the General Court in which among other 
recommendations was one suggesting a limited form of State 
control, provided that the plan were adopted "by a majority 
vote of the town at an annual or special town meeting." Briefly 
stated, the plan recommended ))y this commission provided that 
in towns voting to adopt it, the territory available for the growth 
and planting of molhisks should be leased by the State Commis- 
sioners on Fisheries and Game in accordance with prescribed 
conditions. The suggested plan provided that not more than 
one-half of the available territory should be leased, the remaining 
half, unless voted to the contrary in town meeting, should be 
retained as a public fishery It was further provided that in 
making leases preference should be given to the holders of 
oyster, clam and qiuihaug grants under the present laws, and 
to residents of the town in wliich the territory is located. 

.\t the time the Commission on Kcononn- and Kfficiencv made 



1915] HOUSE — No. 2133. 41 

the recomineRclations referred to, certain conditions surrounding 
the shell fisheries were deemed susceptible of improvement, and 
it is believed that such conditions have not been satisfactorily 
changed. At present there is unfortunately a large amount of 
special legislation applicable to individual towns and cities. 
While special statutory provisions may be required to meet 
unusual conditions in some localities, jet a reasonable amount 
of standardization and uniformity is desirable. This fact is 
gradually being realized by the persons interested in the shellfish 
industries and a bill (House 1793) was introduced in the Legis- 
lature on March 3 of the present year for the purpose of extend- 
ing throughout Barnstable Coimty the statutory provisions which 
then applied to the town of Barnstable. This is cited as an 
illustration of unsatisfactory statutory provisions, the improve- 
ment of which was sought by a legislative act applicable to all 
the towns within a single county. 

The Commonwealth as a whole, not only the inhabitants of 
the shore towns, is interested in increased production of shellfish 
for food, and is further interested in the development of such a 
system of public control as will insure the receipt of public 
revenue in exchange for any valued privilege or grant wdiich may 
be allowed to private enterprise. In order to develop the in- 
dustry it is evident that stability of public regulation and public 
policy must be assured, and it is claimed that in the past such 
stability has frequently been lacking. Moreover, the statutes 
setting forth restrictions, which to a certain degree are necessary 
when dealing solely with natural sources of supply, must be 
supplemented by new laws when a policy is adopted for the 
encouragement of cultivation by artificial means. 

State control in place of local control has been suggested as 
a means for correcting such present conditions as, it is believed, 
are susceptible of great improvement. OjDposition to State con- 
trol has naturally developed on the part of shore towns. While 
certain theoretical advantages may logically be claimed for 
centralized State control, yet it is the opinion of this commission 
that such control at the present time is not practicable. We are, 
however, of the opinion that many impro\ements may be made 
in the present conditions through the enactment of laws which 
will provide a reasonable amount of uniformity in the conditions 
under which fisheries may be conducted in the several shore 
towns, and which will clearly set forth the conditions under 
which privileges or grants may be made by the towns. If the 
statutes were amended so as to define reasonable conditions 



42 FISIIP:HIES and game. [April, 

under whic-li clains and other shellfish nii^ht he eiiltivtited, and 
to insure stuhility of puhlic policy, it is our helief that much more 
rapid development of the Commonwealth's natural resources in 
shell fisheries will follow than can residt under present statutes. 
It is the opinion of this comniission that local or tf)wn control 
should he continued o\er the granting; of fishinj;- rights and priv- 
ileges, hut that such control should he exercised in accordance 
with new statiitory provisions. 

The most important result to l)e sought by statutory amend- 
ments is the huilding up of the shellfish industry so as to in- 
crease our food supply. A secondary residt to be sought is the 
securing of additional public revenue if such can be had without 
proving too heavy a tax upon the development of the industry. 
It is the belief of this commission that additional revenue may be 
secured, providing new conditions and terms are adopted as a 
prerequisite to the granting of fishing pri\ileges. A specific in- 
stance will assist in illustrating this commission's contention. 
The town of Plymouth has granted to the Andrew Kerr Company 
over 200 acres of clam fiats in Plymouth Bay. This grant is for 
a fifteen-year period, and no payment or other consideration was 
made by the company to the town. That the Kerr company, 
which is authorized to issue $500,000 of capital stock, considers 
the grant made by the town of Plymouth a most valuable asset 
is evident from its literature. In a circular issued by that com- 
pany the following statement is made: — 

As the result of a scientific investigation of all the available areas for 
clam culture on the Atlantic coast, from Florida to Maine, the one point 
wliicli possessed all the advantages of naturally productive flats, accessible 
to first-class shipping facilities, and in the center of a populous community, 
was found at Plymouth, Mass. 

In January, 1912, the town of Plymouth procured an amendment to 
the Acts of 1870 relative to the cultivation of shellfish in Pl>aiiouth Harbor, 
enabling it to grant its flats at its own discretion for fiiteen-year periods, 
and shortly afterward a large grant containing over 200 acres of the 
choicest of the PljTiiouth flats was awarded to Mr. Andrew Kerr after due 
investigation as to his eminent qualifications for properlj' developing the 
industry. This is by far the most comprehensive and favorable clam 
grant ever given in the United States. Since its acquirement Mr. Kerr 
has fuUj^ demonstrated, on a large conunercial scale, the complete practi- 
cability of clam propagation as a highly remunerative industry, and has 
at the present time, on less than 100 acres, an estimated content ot 
100, 000,000 marketable clams of a quality unsurpassed, if indeed ever 
equalled, on the Atlantic .seaboard. 



1915.] HOUSE — No. 2133. 43 

It has been stated to this commission that the Kerr company 
has capitalized its grant by the town of Plymouth at $75,000. , 
It seems reasonable that the town of Plymouth should receive 
some direct benefit in the way of public revenue from the Kerr 
company in exchange for this valuable grant, especially when it 
is recalled that prior to the making of this grant the flats now 
controlled by the Kerr company were utilized solely by the gen- 
eral public. If what was formerly a public privilege is made a 
special privilege the toAvn should be compensated. The question 
of the amount of the tax and the time when it should be imposed 
should naturally receive careful consideration, and should be so 
adjusted as to constitute a reasonable payment on the part of 
the Kerr company for a A'aluable franchise gained by them. 

In Rhode Island the control of the shellfish industry is in the 
hands of the State, which derives an annual revenue of approxi- 
mately $135,000 therefrom. Conditions in Rhode Island are 
materially different from those in Massachusetts, particularly 
with respect to the location of the shell fisheries. These are, to 
a large extent, so far distant from the shore as to make local or 
town control much more difficult than in the case of the Massa- 
chusetts fisheries. It is evident that any effective control other 
than State would be difficult in Rhode Island, whereas it is be- 
lieved that in Massachusetts effective control may be exercised 
through the town, provided the proper statutory provisions are 
enacted. 

No attempt is made by this commission to submit any sug- 
gested acts in amendment of the fishery laws, since the prepara- 
tion of proposed legislation of this type should be undertaken 
only after an exhaustive study of this question, for which this 
commission has had no opportunity. In order that this im- 
portant question may receive adequate attention it is recom- 
mended that the Commissioner on Fisheries and Game to be 
appointed upon the reorganization of the department should 
report to the General Court on methods of procedure for devel- 
oping the shellfish industries, with drafts of proposed legislation 
to correct present unsatisfactory conditions and to facilitate the 
production of shellfish. 

Propagation and Distribution of Fish and Game. 
Establishment and Development of Game Farms and Fish Hatch- 
eries. — The establishment and development of the game farms 
and fish hatcheries have been unnecessarily expensive because of 
the purchase in the first instance of properties not well adapted 



44 FISH?:RIES and (;AMK. [April, 

to till' raisiiij,' of f,Num' and fish, with the result that it has be- 
come necessary to purchase or lease additional properties. Ex- 
penditures of considerable sums might have been avoided if an 
adequate plan of development had been adopted after a careful 
survey of the cliaracter of land, water supply and other condi- 
tions essential for game farms and fish hatcheries. 

An instance of poorly planned development is found at the 
game farm at P^ast Sandwich, where the State owns 4V^ acres, 
which the commissioners and the superintendent of the farm 
state is wholly inadequate for raising game. Accordingly, the 
Commissioners on Fisheries and Game in August, 1914, rented at 
East Sandwich from Lila M. Hitchings, the wife of the superin- 
tendent at Sandwich, about 50 acres for the extension of the 
game farm, and have spent, according to the estimates of the 
superintendent, about S2,800 on improvements made on the 
rented property. Now it appears that they have no place on 
this property suitable for raising ducks, and so the commissioners 
requested an appropriation to build a duck pond on the Nye 
farm, another rented property, on which is located part of the 
fish hatchery at East Sandwich. 

In the superintendent's opinion, " it will be absolutely neces- 
sary to either lease or buy the Nye property in order to raise 
ducks for the game farm, as all the other birds are raised on the 
Hitchings' farm where there are no facilities for raising ducks." 
The money expended for the game farm at Sandwich could have 
been used to much greater advantage if additional development 
had been conducted at Marshfield or other reservations in place 
of that at East Sandwich. At Marshfield, which is about 20 
miles from Sandwich, the State has established a game reserva- 
tion on 5,000 acres of privately owned land, the control of which 
was taken over under the provisions of chapter 410 of the Acts 
of 1911. The conditions at this place are ideal for raising such 
game birds as arc now being produced at East Sandwich; in fact, 
the Marshfield reservation appears to be better adapted for 
raising game birds than any other of the State reservations or 
game farms. Moreover, the expense at Marshfield is materially 
less tlian at P^ast Sandwich, since no rent is charged by the 
owners at the former place, who have made a five-year agree- 
ment with the Commonwealth. The superintendent at Marsh- 
field states that there will be no difficidty in obtaining the 
consent of the owners to keep the land indefinitely for the 
propagation of game birds. 



1915.] HOUSE — Xo. 2133. 45 

Another instance of failure to properly investigate before 
purchasing land is found at the Palmer hatcher}', which was , 
established without adequate knowledge of the water supply 
available for producing fish. The State in 1912 purchased 233 
acres of land at Palmer because the Commissioners on Fisheries 
and Game claimed it was an ideal place for a hatchery. In 
spite of this claim and of the statement of Dr. Field as late as 
July 1, 1914, that the water was eminently satisfactory for the 
work, it has been lately discovered that the water supply is not 
suitable, and that it is necessary to buy 80 acres of adjoining 
land in order to secure an adequate water supply and to properly 
utilize the investment already made by the Commonwealth. A 
request for an appropriation to purchase additional land was 
submitted to the Legislature, although the chairman. Dr. Field, 
had never been on the property. 

These instances are mentioned to bear out the recommenda- 
tion that a survey should be made before any further money is 
expended for the development of the stations. 

Administration of Game Farms and Fish Hatcheries. — The 
failure to effectively control the work of the hatcheries is evi- 
denced by the fact that the commissioners have not regularly or 
systematically directed the work at each station. The number of 
visits made at each station by the commissioners indicates clearly 
that these visits have not been made in accordance with system- 
atic oversight of the work. The record of visits, as given to an 
agent of this commission by the superintendents at the several 
stations, shows that frequent visits were made at Sandwich; that 
Mr. Graham visited weekly during the summer, and monthly 
during the winter, the stations at Wilbraham and Pahner; that 
the other two commissioners also visited these two game farms 
several times in 1914; but that the stations at Adams, Sutton, 
Norfolk and Marshfield were seldom visited, the hatchery at 
Adams being visited during 1914 only once by Dr. Field and 
Mr. Graham, and never having been visited by Mr. Adams. 

Laxity of administration is also seen in the failure to properly 
handle and account for farm products at the several stations. 
It has been a common practice for the superintendents of the 
stations to sell eggs and poultry belonging to the State and to 
use the money for buying grain, supplies, furnishings and other 
things for the farms. For instance, during the agent's visit to 
Sutton it developed that between February, 1914, and December, 
1914, the superintendent sold to one firm $175.99 worth of eggs. 



40 FISIIEUIKS AND (iAMK. [April, 

Tlu' supcrintciKli'nt showed credit on f^ruiii hill.s for 804.39, and 
liad in his possession a check for $21.02, but no record of the 
balance of S90.0S could be found. Later, the superintendent 
made up a statement showing how this money was spent, but 
he has not produced receipts or vouchers for the full amount. 
It also was learned that he had sent to the chief clerk of the 
commission's office in Boston during April and May of last year 
22 dozen of eggs for which no bill was rendered. Subsequent to 
the liisclosure of this fact by the Commission on Economy and 
Efficiency a bill for these eggs was submitted. The superintend- 
ent also had in his possession $8 from the sale of 8 roosters, 
which he stated were the first that he had sold. Later it was 
discovered that the superintendent had been in the practice of 
selling poultry for years. 

At Sandwich it was discovered that the State had bought 100 
chickens, raised them at the game farm, and then the superin- 
tendent sold over half of them to the original owner. The rest 
were sold to the wife of the superintendent of the game farm 
and to the superintendent of the fish hatchery. The superintend- 
ent stated that the money received from the sales was expended 
for supplies for the game farm. No record of any of these 
transactions is received either by the Commissioners on Fisheries 
and Game or the Auditor's office. This is a very unbusinesslike 
and dangerous proceeding and should be stopped immediately'. 

Accurate records of all game, fish and farm produce should be 
kept at each station. At present some superintendents keep no 
records and others keep only imperfect ones. A well-arranged 
form of annual report is now used by the superintendents in 
reporting to the office the output of their farms and hatcheries, 
but this report is now too largely based on guesswork. 

The statements of the output of the hatcheries submitted by 
Dr. Field on behalf of the Commissioners on Fisheries and Game 
are misleading in many particulars, and the figures on the value 
of output are greatly in excess of the actual value. For example, 
the statement takes credit for 1,500,000 trout eggs produced at 
Sandwich. These eggs were shipped to Adams and Sutton and 
credit is taken for the full value of the hatched fish at these 
stations. Sandwich shipped 30,000 young fish to the Palmer 
hatchery and credit is given both hatcheries for these fish. P^ull 
credit is given Palmer hatchery for 8,150,000 yellow perch and 
1(), 750, 000 pike, althoiigh all of these fish were hatched from 
eggs received from tlie Federal government and kept at Palmer 
only three or for.r weeks. Both the Sutton and Palmer hatchery 



1915.] HOUSE — No. 2133. 47 

receive credit for 34,000 salmon, hatched from eggs furnished by 
the Federal government, which were sent from Sutton to Palmer, 
and afterwards distributed from there. The commission's state- 
ment gives credit for 670 pheasants and 616 ducks at Sutton, 
when the actual output was 569 pheasants and. 565 ducks. At 
Sharon credit is taken for 278 pheasants and 98 ducks, when the 
actual output was 234 pheasants and 88 ducks. At Wilbraham, 
although there were 45 less quail at the end of the year than at 
the beginning, and none were distributed, credit is taken for 10 
quail, also for 1,059 pheasants and 613 ducks, although the actual 
output, as taken from the superintendent's figures, was 925 
pheasants and 576 ducks. It should be understood that while 
we cannot rely on the figures of the superintendents as being 
accurate, they are the only figures available, and form the basis 
of the statement on output submitted by Dr. Field, which is 
subject to criticism because of the manner in which the super- 
intendents' figures have been tabulated and summarized. 

In considering the cost of operating the department it is sig- 
nificant that the appropriation estimates as submitted by the 
superintendents to the commissioners have been materially 
smaller than the amounts requested by the commissioners for the 
support of the several stations. In nearly eveiy instance the 
estimates submitted by the superintendents for the fiscal year 
1915 were increased by the commission. The superintendents 
advised an agent of this commission that they knew of no neces- 
sity for the increases, and the only reason advanced by the 
commissioners was that sometimes they planned work of which 
the superintendents knew nothing. When asked for details and 
specific instances the commissioners then stated that they had 
submitted their estimates prior to receiving those of the super- 
intendents. 

In view of the extreme laxity in administration, the excessive 
cost of game farms and fish hatcheries, and the very small num- 
ber of birds produced, it is believed that careful consideration 
should be given to the policy of purchasing fish and game for 
purposes of restocking the natviral supply in place of the present 
system of production. 

Comments and recommendations on several of the game farms 
and fish hatcheries are given in the following statements: — 

Adams Haichery. — This hatchery could easily be -developed to 
twice its present capacity and pools constructed for developing 
the fry to fingerlings before distribution, as the conditions there 
are excellent for raising fish, the water never varying from 42°. 



4S FISHERIES AND (iAME. [April. 

We rfcoimiu'iKl that this i)hin l)t> ^'ivcii careful consideration, as 
Hnj,'crlings are al)le to take care of tiienisolves, hut fry easily 
i)ecoine the prey of larger fish. 

Mdrfha'.s I'inrifard Rcscrvatioyi. — The present superintendent 
assumed control two years ago, and has developed over 50 acres 
which contained nothing but scrub oak into fine farm land, and 
has raised some stock. If this farm is to be retained for the 
raising of heath hens or any other kind of game birds we recom- 
mend that the (iOO acres of State land be developed as far as 
practicable. 

East Snndwich Ilaichrry and Farm. — Accorrling to the state- 
ment of the superintendent about $2,800 has been expended for 
improvements on the rented land. After an examination of the 
State's property on this land it is estimated that SSOO is a liberal 
value to place upon it. In any event it appears unwise for the 
State to expend any more money for permanent improvements 
on rented property. 

According to figures furnished by the commission the expendi- 
tures during the year for the bird farm, including the purchase 
of soine stock, were S3, 859. 83. This amount seems an exorbi- 
tant expenditure for raising 300 or 400 quail (exact figures are 
not available) and 15 or 20 ruffed grouse. 

In view of these conditions, and of the claim of the commis- 
sioners and superintendent that more land is necessary if the 
farm is to be properly developed, we recommend the immediate 
discontinuance of the game farm at East Sandwich and the 
removal of the State's property to the reservation at Marshfield 
or other reservations. 

Wilhraham Game Farm. — Absolutely no records are kept at 
the farm, and it is impossible to obtain any definite information 
in regard to the cost of operation, as the superintendent buys 
ancl sells produce and does not even keep the original bills. The 
superintendent stated that no instructions had ever been given 
him by the commission to keep a record of the expenditures or 
the amounts received for eggs, produce and poultry. 

Inasmuch as it is only a short distance from the Wilbraham 
farm to the hatchery at Palmer, where the State owns 233 acres 
of land suitable for raising game, and has an option on 80 addi- 
tional acres, we recommend that the Wilbraham game farm be 
sold and the equipment and stock l)e transferred to the reserva- 
tion at Palmer. .\ consideralile saving could be made by this 
consolidation, inasmuch as the expense of operating a larger sta- 
tion at Palmer woidd l)e materially less than the expense for the 



1915.] HOUSE — No. 2133. 49 

two stations now maintained. No reason has been advanced by 
the Fish and Game Commission why birds would not thrive 
fully as well at Palmer as at Wilbraham. There is no difference 
in the expense of distribution from the two stations. The farm 
at Wilbraham gould readily be sold or rented by the State. 

Norfolk State Hospital Reservation. — • The expense for this reser- 
vation during 1914 appears clearly excessive when measured by 
the number of birds produced and cared for during the year. 
Breeding pheasants can be purchased for $3.50 each, according 
to figures submitted by the Fish and Game Commissioners, but 
the cost per bird raised at Norfolk was twice the market price. 

The Norfolk hospital grounds are well adapted for use as a 
game farm, and it is believed that the maintenance of a reserva- 
tion there offers excellent opportunity for the employment of 
inmate labor. Efforts should be made, however, to reduce the 
expenses, which can be eft'ected by careful administration. 

Marshfield Reservation. — The total expense incurred last year 
at Marshfield was only $655.66, including the salary of the su- 
perintendent. This reservation appears to be not only the most 
economically, bvit also the most efficiently, managed game farm 
under the control of the Commissioners on Fisheries and Game. 
Flocks of quail and other game birds are much in evidence, 
and the superintendent's methods of producing and raising wild 
birds appear to be effective and satisfactory. 

The conditions at Marshfield permit of its development to at 
least three times its present capacity, and, as previously stated, 
we recommend that the game farm at East Sandwich be discon- 
tinued and that a part if not all of the State's equipment and 
stock of game birds at that station be transferred to Marshfield. 

Sharon Reservation. — The amount of money expended during 
1914 was $1,548.26, which appears excessive when compared with 
the production for the year, which amounted to 234 pheasants, 
88 ducks and 6 quail. 

The conditions under which the Sharon reservation is main- 
tained are open to severe criticism. The State's activities are 
so completely intermingled with the private business of Dr. Field, 
whose sister owns the land used for the State reservation, as to 
render satisfactory administration impossible. Stock and sup- 
plies purchased by the State and stock owned by Dr. Field are 
utilized in much the same manner as they would be if the Com- 
monwealth and Dr. Field were partners in a single business 
undertaking. Several specific instances are given for the purpose 
of clearly indicating the conditions. 



50 FISHERIES AND GA]\IE. [April, 

The superintendent stated that on May 6, 1914, 2,500 young 
pear, apple and quince trees arrived at the farm addressed to 
him as superintendent of the game farm. He paid the freight on 
these trees, although he could not understand what use could be 
made of them by the Fish and Game Commission. These trees 
are now planted on Dr. Field's farm. When this matter was 
taken up with the Fish and Game Commission, Mr. Adams and 
Mr. Graham stated that they had no knowledge of the purchase 
of any fruit trees, although they remember sanctioning the pur- 
chase of hard-berry trees and shrubs. Dr. Field stated that the 
fruit trees were ordered from France at the same time that the 
other trees had been purchased. The fruit trees were shipped 
to Sharon and the other trees were distributed to the other 
stations. 

The superintendent has found it impossible to keep the State's 
fowl separate from those owned by Dr. Field, and stated that 
many arguments were held over using the feed purchased by the 
State for Dr. Field's fowl. At the time of the agent's visit all 
of the fowl belonging to the State were found in Dr. Field's yard 
intermingled with his flocks. 

Many contradictory statements have been made regarding a 
flock of 100 white Plymouth Rock hens at Sharon. At a hearing 
before this commission on Aug. 25, 1914, Dr. Field testified 
that these 100 hens belonged to his foreman, Mr. Shedd, and 
that he himself had no hens. It has since developed that Dr. 
Field in March, 1914, brought these 100 chicks, then a few days 
old, to the superintendent of the Sutton hatchery and had them 
raised there. No mention was made to the superintendent con- 
cerning the ownership of the hens, and they were fed with the 
State's grain while at Sutton. In May they were shipped to 
Sharon at the direction of Dr. Field. At a hearing before this 
commission on March G, 1915, Dr. Field retracted his statement 
given at the hearing on August 25 and stated that these hens 
were his personal property. Mr. Shedd, Dr. Field's foreman, 
stated to an agent of this commission that he was not sure 
whether the hens belonged to Dr. Field or the State. 

In the face of the existing conditions we recommend that the 
station at Sharon be discontinued and all of the State's property 
transferred to the reservation at Norfolk. 



1915.1 



*" HOUSE — No. 2133. 



51 



Appendix A. 



Officials and Employees in Department of Fisheries and 
Game, together with Rates of Compensation. 
The classes of officials and employees in each group" or division, 
together with the rates of compensation on March 1, 1915, are 
shown in the following statement: — 



Chairman, 






. 1 at S3,000.00 3a-. 


Commissioners, 




. 2 at 


5.00 day 


I. Clerk, 




. 1 at 


1,500.00 yr. 


vStenographer, 


. 1 at 


85.00 mo. 


Stenogi 


apher, 


. 1 at 


75.00 mo. 


Bookkeeper, 


. 1 at 


62.50 mo. 


Stenographer (temporary emploj-ee), 


. 1 at 


50.00 mo. 


Office bey, 


. 1 at 


25.00 mo. 


II. Biologist, 




. 1 at 


1,800.00 yr. 


Assistant biologist (temporary e 


m- 




ployee), 


. 1 at 


55.00 mo. 


III. Division for enforcement of law: — 






Chief Deputy, 


. 1 at 


1,500.00 yr. 


Deputy commissioners : — • 






1. 


Andover, .... 


. 1 at 


1,200.00 yr. 




Andover (at large), . 


. 1 at 


80.00 mo. 


2. 


Ayer (vacant), . 






3. 


Brockton, .... 


. 1 at 


1,200.00 yr. 


4. 


East Boston, 


. 1 at 


1,200.00 yr. 


5. 


Easthampton, 


. 1 at 


960.00 yr. 


6. 


Edgartown, 


. 1 at 


1,200.00 yr. 


7. 


Fitchburg, .... 


. 1 at 


1,200.00 yr. 


8. 


Foxborough, 


. 1 at 


1,200.00 yr. 


9. 


Framingham, 


. 1 at 


1,200.00 yr. 


10. 


Gardner, .... 


. 1 at 


1,200.00 yr. 


11. 


Gloucester, 




. 1 at 


1,200.00 yr. 


12. 


Greenfield, 




. 1 at 


1,200.00 yr. 


13. 


Harwich, 




. 1 at 


1,200.00 yr. 


14. 


Lee, 




. 1 at 


1,200.00 yr. 


15. 


Lynn, . 




. 1 at 


1,200.00 yr. 


16. 


Nantucket, 




. 1 at 


1,200.00 yr. 


17. 


New Bedford, 


. 1 at 


1,200.00 yr. 



1 When engaged in the work of the commission. 



52 



FISHERIES AND GAME. 



[ApriL 



III. Division for enforcement of Law — Con 
Deputy Commissioners — Coti. 

18. North Adam.s, 

19. North Grafton, . 

20. North Middleborougl 

21. Pahner, 

22. Pittsfiekl, . 

23. Springfield, . 

24. Taunton, . 

25. Ware, . 

26. Westfield, . 

27. Worcester, . 
lY. Wilbraham Game Farm : — 

Superintendent (in charge of propaga 
tion of birds), . 

Assistant, 

Laborer, 

Laborer, 

V. Sutton Hatcher}': — 

Superintendent (in charge of propaga 
ing fish and birds) , 
Assistant, 
Assistant, 

Laborer, .... 
Bird cuhurist (temporary), 
Laborers (temporary), . 
Laborer (temporary), . 
\'l. Pahner Hatcher}^: — 
Sui^erintendent, 
Foreman (in charge of fish propaga 

tion). 
Bird and fish culturist, 
Teamster, 

Laborer (temporary), 
Laborer (temporary). 
Laborer (temporarjO, 
Assistant (temporary). 
Laborer, . 
VIL Sandwich Hatchery: — 

Superintendent (in charge of propaga 
tion of fish), 
Fish culturist. 
Fish culturist. 
Fish culturists, 
Laborer (temporary), 
Assistant, 







1 at. SI, 200.00 yr. 






1 at 


900.00 vr. 


') 




1 at 


1,200.00 yr. 






1 at 


1,200.00 yr. 






1 at 


1,200.00 yr. 






1 at 


1,200.00 yr. 






1 at 


1,200.00 yr. 






1 at 


1,200.00 yr. 






1 at 


l.OSO.OOyr. 






1 at 


900.00 yr. 



1 at 100.00 mo. ' 

1 at 55.00 mo. 

1 at 2.50 day 

1 at 2.00 day 



1 at 
1 at 
1 at 
1 at 

1 at 

2 at 
1 at 



1 at 
1 at 
1 at 
1 at 
1 at 
1 at 
1 at 
1 at 



100.00 mo. 1 
50.00 mo. 
30.00 mo. - 
55.00 mo. 
50.00 mo. 

.20 hr. 

.15 hr. 



1 at 1,200.00 yr.' 



65.00 mo. ' 
60.00 mo. ' 
50.00 mo. ' 

.37^ hr. 

.56i lu-. 

.25 hr. 

.25 hr. 

.431 hr. 



1 at 1,200.00 yr.i 

1 at 65.00 mo. 

1 at 50.00 mo. ' 

2 at 50.00 mo. 
1 at 40.00 mo. 
1 at .20 hr. 



' Witli liousc. 



With board. 



1915.1 HOUSE — No. 2133. 53 

^'III. Sandwich Hatchery Bird Farm: — 

Superintendent, 1 at $112.00 mo. 

Laborer (temporary), . . , . 1 at 2.00 day 

IX. Adams Hatchery: — 

Superintendent (in charge of hatchery), lat 15.00 mo. ' 
X. Martha's Vineyard Reservation: — ■ 

Superintendent (in charge of propa- 
gating birds), . . .lat 100.00 mo. ^ 
Laborer (temporary), . . .lat 45.00 mo. ^ 
Laborer (temporary), . . . . 1 at • 35.00 mo. 
XL Sharon Reservation: — ■ 

Superintendent (in charge of propaga- 
tion of birds) , . . .lat 70.00 mo. 
XII. Marshfield. Reservation: — 

Superintendent, 1 at 50.00 mo. 

XIII. Norfolk State Hospital Reservation: — 

Superintendent, 1 at 50.00 mo. 

XIV. Hadley Hatchery (not in use) : — 

Care of hatchery, 1 at 1.00 mo. 

1 Receives $1.5 per month when no fish at hatchery and $25 per month when taking care of fish, 

2 With house. 

» With garden. 



54 



FISHERIES AND GAME. 



[April, 



Appendix B 



Receipts of the Fish and Game Commission during the 
Years 1912, 1913 and 1914. 

[Figures compiled by Fish and Game Commission.! 



Received from ■ 



1912. 



1913. 



1914. 



Non-resident licenses ($10 each), 
Non-resident licenses ($1 each), 
Resident licenses ($1 each), . . . . 
Alien licenses ($15 each), . . . . 

Total 

Sale of lobsters to United States government. 

Sale of game tags, 

Interest on bank deposits. 

Leases of clam flats, ..... 

Forfeitures, 

Refunds, ....... 

Sale of launch, ..... 

Sale of fish (cliapter 44, Resolves of 1914), 

Yearly totals 



$1,018 45 

84 80 

47,886 40 

1,507 65 



$50,497 30 

$209 85 

29 35 
55 00 

2 35 

3 40 



$50,797 25 



SI, 532 00 

125 65 

51,963 45 

1,820 70 



$55,441 80 



$995 95 
31 46 



133 10 
200 00 



$56,802 31 



$1,264 70 

137 20 

61,192 25 

2.372 70 



$64,966 85 



$561 70 
41 95 



68 80 



319 12 



$65,958 42 



1915.] HOUSE — No. 2133. 55 



Appendix C 



Acquisition of Properties for Game Farms and Fish Hatch- 
eries. 
So far as can be learned from such records as were kept at 
that time the following purchases of land were made : — 

Sutton Hatchery. 

Oct. 26, 1891, land and springs (2 acres), $387 50 

Nov. 19, 1894, land (4 acres), 300 00 

Oct. 7, 1902, land (3.75 acres), 225 00 

Nov., 1912, land (12.995 acres), (chapter 271, Acts of 1911), . 971 62 



Total of 22.745 acres, at total cost of, $1,884 12 

Martha's Vineyard Reservation. 
Antone Andrews property : — 
Purchased November, 1908. 
Cost $2,500. 

Consists of land (600 acres) and building. 
Cromwell property : — 

Leased June 1, 1912, with option of purchase for $10,000 in five 

years. 
Consists of land (1,000 acres) and buildings. 

Wilbrahani Game Farm. 
Reader property : — 

Leased Jan. 15, 1912. 

Purchased June 29, 1914. 

Cost $1,800. 

Consists of land (32 acres) and buildings. 
Bostick property : — 

Leased Nov. 11, 1912. 

Purchased June 20, 1913. 

Cost $3,500. 

Consists of land (100 acres) and buildings. 
Atchinson property: — 

Leased Jan. 15, 1912. 

No option of purchase. 

Consists of 70 acres of land. 



56 FISHERIES AND GAME. [April, 

Clark property : — 

Leased Jan. 15, 1912. 
No option of purchase. 

Consi.'^ts of 7 acres of land. 

Sandwich Hatchery. 
Property of Sandwich Trout Company : — 

Taken under chapter 237, Acts of 1912, on July 13, 1912. 

Cost $9,000 (exclusive of amount paid for stock of brood trout, etc.). 

Consists of land (26.54 acres) and buildings. 
Ray Nye property : — 

Leased March 3, 1913. 

No option of purchase. 

Consists of land (about 15 acres) and buildings. 
Lila M. Hitcliings property: — 

Leased Aug. 29, 1914. 

Option of purchase for $4,200 within two years, or $4,500 within 
a three-year renewal of the lease. 

Consists of land (about 50 acres) Avith buildings. 

Palmer Hatchery. 
Goodreau property : — 

Leased Feb. 10, 1912. 

Purchased Aug. 21, 1912. 

Cost $1,900. 

Consists of land and buildings (68 acres). 
Gates property : — 

Leased Feb. 10, 1912. 

Purchased March 18, 1913. 

Cost $4,500. 

Consists of land (145 acres) and buildings. 
Wright property : — 

Leased June 29, 1912. 

Purchased April 9, 1913. 

Cost $2,000. 

Consists of land (20 acres) and buildings. 
Henrj^ Fortune : — 

Leased July 29, 1914. 

Option of purchase within one year for $1,000. 

Consists of about 85 acres of land, A\ath buildings. 



1915.] HOUSE — No. 2133. 57 

Appendix D . 



Draft of Proposed Act reorganizing the' Commission. 

An Act to provide for the Appointment op a Commissioner on 

Fisheries and Game. 
Be it enacted, etc., as follows: 

1 Section 1. The governor, with the advice and consent of the 

2 council, shall appoint a commissioner on fisheries and game who shall 

3 hold office for a term of three years from the date of his appointment. 

4 Upon the expiration of the term of office of such commissioner the 

5 governor shall appoint a successor for a like term. The commissioner 

6 shall devote his entire time to the ser\ace of the commonwealth, shall 

7 receive an annual salary of , and any vacancy for 

8 an unexpired tei-m shall be filled by the governor, with the advice and ' 

9 consent of the council. The commissioner may be removed by the gov- 

10 ernor, with the advice and consent of the council. 

1 1 Upon the appointment and quaUfication of the commissioner hereby 

12 provided, the present board of commissioners on fisheries and game 

13 shall cease to exist, and the commissioner appointed in accordance with 

14 the provisions of this section shall succeed to all the powers and assume 

15 all the obligations and duties now conferred and imposed by law upon 

16 the present board of commissioners on fisheries and game. 

1 Section 2. The commissioner on fisheries and game is hereby 

2 authorized to appoint a first deputy commissioner who shall serve at 

3 the pleasure of the commissioner and who shall have immediate direc- 

4 tion, under the authority of the commissioner, of the commonwealth's 

5 game farms and fish hatcheries. The deput}^ to be appointed under 

6 authority of this section shall have had training and experience in the 

7 work of propagation and conservation of game birds and fish. The sal-. 

8 arj^ of the first deputy shall be fixed by the commissioner on fisheries 

9 and game, subject to the approval of the governor and council. 

1 Section 3. For the purpose of this act the commissioner may, sub- 

2 ject to the rules and regulations of the ci\il service commission, unless 

3 otherwise provided, employ such clerical and other assistance as he 

4 may consider necessarj^ 

5 It is further provided that employees now occupying positions 

6 which, in the judgment of the commissioner, may be considered un- 

7 necessaiy as the result of reorganization or of the adoption of new 

8 methods of work may be removed by the commissioner, anj^ rule and 

9 regulation of the civil service commission to the contrary notwith- 
10 standing. 

1 Section 4. Section two of chapter ninetj^-one of the Revised Laws 

2 and all acts and parts of acts inconsistent herewith are hereby repealed. 
1 Section 5. This act shall take effect upon its passage. 



58 FISHERIES AND GAME. [April, 1915. 



Appendix E 



DuAFT OF Proposed Resolve atithorizixg Sale of Property 

AT WiLBRAHAM. 

Resolve to authorize the Sale of Certain Property owned by the 
Commonwealth in the Town of Wilbraham. 

1 Resolved, That the coimiiissioner on fisheries and game is hereby 

2 authorized to sell and convey by suitable deed the i)ropert3' owned bj"- 

3 the conimonwealth in the town of Wilbraham, known as the Wilbra- 

4 ham game farm, and acquired under the provisions of chapter two 

5 hundred and seventy-one of the acts of the year nineteen hundred and 

6 eleven, the jiroceeds of said sale to l)e paid into the treasury of the 

7 commonwealth. 



Makers 

Syracuse, N. Y, 

PAT. JAN. 21, 1908 










m. 















^.■')t:<vy ;%'^;J' ?'^'.'-^i \v/---v"- /;f ■'." ;^ ,- 

L-^'^^i^-^v.;^ ■ '^S'^/' ■■■■ ^^'G -''-■'■ '■'■ • » i' : '';f ■ ,"-" ^' 

Vi.--- . I- ..■ I..- 'L!', ■!,''■..■?'-:-■ ■ >. . •-■■■■.--,■. .-■I.''-' 



■■■f:;,. 









'-' C''*?'t.' '■', -;■ v /^ .. .,' 



S-AafwSi¥-ff. 



